THE  LIBRARY 

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OF  CALIFORNIA 
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CHILD   WELFARE   WORK 
IN  CALIFORNIA 

A  STUDY  OF 
AGENCIES  AND  INSTITUTIONS 


BY 

WILLIAM  H.  SLINGERLAND,  PH.D. 

SPECIAL  AGENT  DEPARTMENT  OF  CHILD-HELPING 
RUSSELL  SAGE  FOUNDATION 


INTRODUCTION 
BY  HASTINGS  H.    HART,    LL.D. 

DIRECTOR  OF  THE  DEPARTMENT 


NEW      YORK 

DEPARTMENT   OF   CHILD-HELPING 

RUSSELL   SAGE   FOUNDATION 


MCMXV 

,     3  7^^ 9 
0    1^4  17 


Copyright,  1916,  by 
The  Russell  Sage  Foundation 


THE    RUMFORD    PRESS 
CONCORD,    N.    H. 


PREFACE 

THIS  volume  is  a  contribution  to  the  fund  of  facts  now  being 
gathered  in  regard  to  child-helping  in  the  United  States, 
it  describes  the  agencies  and  institutions  of  the  state  of 
California  devoted  to  the  care  of  dependent,  delinquent,  and  defec- 
tive children.  The  book  is  one  of  a  series  specially  prepared  to 
present  and  illustrate  the  types  of  institutions  and  methods  of 
service  used  in  behalf  of  such  children  in  various  commonwealths 
of  the  nation. 

Three  volumes  in  this  related  group  are  by  the  same  author — 
the  present  volume.  Child  Welfare  Work  in  California;  one  pre- 
viously published.  Child  Welfare  Work  in  Pennsylvania,  with  its 
supplement,  A  Child  Welfare  Symposium;  and  one  nearly  ready 
for  the  press,  Child  Welfare  Work  in  Washington.  The  fourth 
volume  of  the  series,  by  Miss  Florence  Lattimore,  will  describe 
the  child-caring  agencies  of  Maryland. 

Child  Welfare  Work  in  California  is  both  a  descriptive  survey 
and  a  manual  of  reference,  adapted  to  the  needs  of  social  workers 
and  all  those  who  are  interested  in  children's  charities.  It  contains 
a  very  complete  list  of  the  child-caring  agencies  and  institutions 
of  the  state,  with  brief  textual  narratives  and  extended  statistical 
tables.  To  insure  ready  reference,  a  special  register  is  provided 
following  the  table  of  contents,  in  which  the  institutions  are  listed 
alphabetically  by  location,  with  the  page  and  table  where  the 
descriptive  text  or  the  statistics  may  be  found,  and  the  index  at 
the  close  of  the  book  includes  direct  reference  to  the  institutions 
by  their  names. 

The  writer  gladly  acknowledges  his  indebtedness  to  many 
social  workers  in  California  for  assistance  in  gathering  the  materials 
for  this  book.  The  former  secretary  of  the  state  board  of  charities 
and  corrections,  W.  Almont  Gates,  and  the  present  incumbent  of 
that  office,  Stuart  A.  Queen,  were  especially  helpful.  Others, 
including  various  state  oificials  at  Sacramento,  rendered  very 
valuable  service  both  in  general  suggestions  and  in  personal  assist- 

iii 


PREFACE 

ance.     All  of  these,  and  many  more  who  can  not  be  definitely 
named  or  even  alluded  to,  are  gratefully  remembered. 

Three  principal  difficulties  militated  somewhat  against 
exactness  in  details  and  accuracy  in  statistics:  First,  the  lack  of 
uniform  records,  indeed  in  some  cases  the  absence  of  any  records 
worthy  of  the  name;  second,  the  fact  that  many  institutional 
officers  failed  to  recognize  the  need  of  exact  and  accurate  reports 
if  their  institutions  were  to  be  fairly  and  adequately  represented; 
third,  this  research  by  exterior  and  unofficial  parties,  additional 
to  numerous  local  and  state  efforts  to  obtain  information,  found 
some  officials  weary  with  much  inquiry,  and  a  few  suspicious  lest 
the  reports  in  some  way  should  be  used  to  their  disadvantage. 
Nevertheless,  it  is  believed  that  in  the  main  the  descriptions,  esti- 
mates, and  statistics  very  closely  approximate  institutional  con- 
ditions, property  values,  and  the  child  welfare  work  actually  done. 

The  introductory  chapter  by  Dr.  Hastings  H.  Hart  presents 
a  comparative  study  of  California  and  other  states,  and  a  terse 
resume  of  present  conditions  and  tendencies. 

The  summaries  and  special  comparative  tables  reveal  many 
facts  heretofore  unknown.  The  chapter  on  Child-placing  in 
Families  is  a  significant  review  of  this  important  subject.  That  on 
California  Foster  Homes  will  convince  any  doubters  as  to  the  good 
quality  of  many  families  applying  for  children.  The  Symposium 
of  Executive  Opinion  shows  both  the  ideas  and  the  spirit  of  many 
leading  California  social  workers.  The  Suggestions  and  Recom- 
mendations of  the  final  chapter  outline  many  ways  to  improve 
present  conditions.  The  illustrations  visualize  some  of  the  prin- 
cipal institutions.  The  whole,  we  trust,  will  make  clear  to  all 
readers  the  present  excessive  institutional  provision  for  the  welfare 
of  dependent,  delinquent,  and  defective  children  in  the  state  of 
California. 

William  H.  Slingerland. 
New  York  City,  October,  191 5. 


IV 


TABLE  OF  CONTENTS 

Preface      ....       

List  of  Illustrations 

Index  to  Statistical  Tables 

Glossary  of  Abbreviations 

Alphabetical  Register  of  Agencies  and  Institutions. 


PAGE 

iii 
vii 

xi 
xiii 
xiv 


Part  One 
PRELIMINARIES 

Introduction.     By    Hastings    H.    Hart,    LL.D.,    Director 

Department  of  Child-Helping 

I.  An  Explanatory  Foreword 

II.  Definitions,  Lists,  and  Statistical  Tables 

III.  Outlining  the  Field 

y  IV.  Development  of  Institutions  and  Child  Welfare  Work 


3 

12 

i8 
25 
30 


Part  Two 
ONE  HUNDRED  AND  ONE  INSTITUTIONS 

V.  Sherman  Institute 

VI.  Institutions  for  Defective  and  Delinquent  Children 
VII.  Juvenile  Detention  Homes 
^VIII.  Child-placing  Agencies       .... 
»--tX.  Nonsectarian  Orphanages  and  Homes 
'--  X.  General  Church  Orphanages  and  Homes 
XI.  Catholic  Orphanages  and  Homes     . 
XII.  Institutions  for  Combined  Care  of  Adults  and  Children 


39 
42 

50 
60 

74 

94 

106 


Part  Three 
SUMMARIES  AND  AUXILIARY  ORGANIZATIONS 

XIII.  Summary  for  Private  Child-caring  Institutions    . 

XIV.  General  Summary  for  All  Agencies  and  Institutions    . 
XV.  Combined  County  and  State  Aid  for  Dependent  Children 

V 


131 
137 
144 


"79 


TABLE    OF    CONTENTS 


XVI.  Population,  Expense,  and  Public  Funds 
XVI 1.  Day  Nurseries  and  Settlement  Centers 
XVill.   Child  Relief  and  Protection 


PAGE 
152 
160 
169 


Part  Four 
ANALYSIS  AND  ELEMENTS  OF  PROGRESS 

*'XIX.  Child-placing  in  Families  . 
XX.  California  Foster  Homes    . 
XXI.  Some  Causes  of  Dependency 
XXII.  A  Symposium  of  Executive  Opinion 
XXllI.  Suggestions  and  Recommendations 
Index  


179 
186 
192 
198 
213 
237 


VI 


LIST  OF  ILLUSTRATIONS 

(Arranged  alphabetically  according  to  location  of  institution) 

Anaheim 

St.  Catherine's  Orphanage  page 

Orphanage  Building io6 

Orphanage  Family .106 

Boys'  Dormitory 107 

Boys'  Lavatory 107 

Orphanage  Vegetable  Garden 107 

Chino 

California  George  Junior  Republic 

Group  of  Buildings 32 

Farm  Cottage 32 

President  and  Cabinet 32 

Building  Erected  by  the  Boys 33 

Baseball  Squad  in  1914 33 

Eighth  Grade  Pupils.     November,  19 14 33 

Eldridge 

Sonoma  State  Home 

Avenue  at  Entrance  to  Institution 42 

Main  Buildings 42 

Oak  Lodge — One  of  the  Cottages 42 

Lux  Cottage 43 

Institution  Choir 43 

A  Class  in  Sloyd 43 

lone  (P.  O.  Waterman) 

Preston  School  of  Industry 

Cadets  Assembled  before  Main  Building       ....  6 

Trades  Building 6 

West  Cottage 7 

Honor  Cottage 7 

Football  Team 7 

Los  Angeles 

Children's  Home  Society  of  California 

Victoria  Home — Society  Headquarters,  Los  Angeles  .       .  64 

Foster  Home,  Los  Angeles 64 

Interior  of  Foster  Home,  Highland,  California     ...  64 

Office  and  Residence  of  District  Superintendent,  Berkeley  65 
vii 


LIST   OF    ILLUSTRATIONS 

Juvenile  Hall  page 

Front  View  Through  Grove 52 

Rear  View,  Showing  Extent  of  Structure       ....  53 

Patio  or  Inner  Court 53 

Lark  Ellen  News  and  Working  Boys'  Home 

Home  on  Poinsettia  Ranch 78 

Ranch  Playground 78 

Los  Angeles  Orphan  Asylum 154 

Maud  B.  Booth  Home 

Front  of  Main  Building 102 

Reception  Hall,  Library,  and  Stairway         .       .       .       .102 

Dining  Room 102 

A  Model  Dormitory 103 

Line-up  of  Lassies 103 

Line-up  of  Laddies 103 

Truelove  Home  (Salvation  Army) 

Maternity  and  Children's  Home 122 

Convalescent  Ward,  Maternity  Building       .       .       .       .122 

A  Truelove  Baby       .       . 123 

Let  Me  Love  You 123 

Lytton 

Boys'  and  Girls'  Industrial  Home  and  Farm 

Home  Village,  from  Hill  on  the  North 148 

Administration  Building 148 

Dining  Room.    Officers  and  Children  Eat  Together  .       .  148 

Sonoma  Cottage.     Built  by  the  Boys 149 

House  Mother  and  Brood  of  Children 149 

Supper  Time 149 

Oakland 

West  Oakland  Home 

Main  Building 79 

Cottage  for  Babies  and  Small  Children         ....  79 

Children  at  Play 79 

Sacramento 

Sacramento  Orphanage  and  Children's  Home 

Two  Cottages  and  a  Cottage  Family 82 

Typical  Cottage  Family 82 

Gardening.     Boys'  Hall  in  Distance 82 

The  Stork's  Nest — A  New  Cottage 83 

Stork's  Nest  Dormitory 83 

Stork's  Nest  Dining  Room 83 

viii 


LIST   OF    ILLUSTRATIONS 

San  Diego 

Children's  Home  Association  page 

Main  Building 138 

Boys'  Cottage.     Hospital  in  Distance 138 

Nellie-Inez  Cottage  for  Infants  and  Small  Children    .        .138 

Babies  at  the  Bar 139 

Sandlotters  of  San  Diego 139 

Floating  Away  on  Christmas  Morning 139 

San  Francisco 

Boys'  and  Girls'  Aid  Society 

Main  Building  with  Bishop  Annex 198 

Working  Boys  of  the  Bishop  Annex 198 

Busy  Workers  in  the  Sloyd  Shop 198 

Berry  Picking  at  Sebastopol 199 

Dining  Tent  at  the  Summer  Camp 199 

Sunday  Service  at  the  Summer  Camp 199 

Hospital  for  Children 

Main  Building 174 

Alexander  Maternity  Cottage 175 

Separate  Pavilion  for  Contagious  Cases         .               .        -175 
Nurses'  Home,  Orthopedic  Building,  Eye  and  Ear  Build- 
ing          175 

Infant  Shelter 

Front  View  of  Institution 162 

Airing  Infants  in  the  Patio 162 

Sheltered  from  Early  Infancy 163 

Head  Nurse  and  Sample  Baby 163 

Sun  Parlor,  Old  Sol  Shines  in  on  Three  Sides       .       .       .  163 

Native  Sons'  and  Native  Daughters'  Central  Committee 

Symbolic  Parade  Float 65 

Oriental  Home 

Oriental  Home  and  Chinese  M.  E.  Church    ....  97 

Kindergarten  Children 97 

All  Ages  at  the  Home 97 

Pacific  Hebrew  Orphanage 

Domestic  Science  Cottage 96 

Main  Building 96 

Roman  Catholic  Orphan  Asylum 

New  Building.     Capacity,  500 112 

Orphan  Asylum  Dining  Hall 112 

One  of  the  School  Rooms 113 

ix 


LIST   OF    ILLUSTRATIONS 

PAGE 

Congregate  Lavatory 113 

Learning  to  Cook 155 

On  the  Playground 155 

San  Francisco  Babies'  Aid 

Babies'  Aid  Cottage.    Old  Foundling  Asylum  to  the  Left  86 
Cradle  of  Tragedy — Substitute  for  European  Revolving 

Crib 86 

San  Francisco  Protestant  Orphan  Asylum 

First  Orphan  Asylum  on  the  Pacific  Coast.     Founded,  1851 

Frontispiece 

Asylum  Entrance.     Mobilization  of  Forces  .        .        .  132 

Drill  for  Girls  in  Needlework 132 

Developing  Future  Mechanics 132 

Kindergarten  Class 133 

Girls' Physical  Culture  Class 133 

Boys  in  the  Gymnasium 133 

San  Gabriel 

Southern  California  Masonic  Orphanage 87 

San  Jose 

Florence  Crittenton  Home 123 

Watsonville 

St.  Francis'  Orphanage 

Old  Plant — Now  Being  Replaced 116 

Pajaro  Valley  Orphanage  Band 116 

New  Plant  of  St.  Francis' Orphanage 117 


INDEX  TO  STATISTICAL  TABLES 
SPECIAL  TABLES   IN  TEXT 


A.  Institutions  for  dependent,  delinquent,  and  defective  children 

in  seven  states 4 

B.  Comparison  of  institutions  for  dependent,  delinquent,  and 

defective  children  in  four  states 6 

C.  Subsidies  to  institutions  for  dependent  children  in  four  states  9 

D.  State  and  county  aid  for  dependent  children  in  California, 

191 1 II 

E.  Ratio  to  population  of  children  in  orphanages  and  homes       .  17 

F.  State  aid  granted  to  dependent  children 144 

G.  Dependent  children  receiving  state  aid 145 


XI 


INDEX   TO   STATISTICAL  TABLES 


GENERAL    TABLES 

Chapters  Relating  to  These  Tables  Immediately  Precede  Them 

(Footnotes  will  be  found  at  the  close  of  each  table.     For  list  of  abbrevia- 
tions used  in  tables  see  page  xiii.) 


Number 

Sections 

Page  of  table 

Table 

Groups  of  agencies  or  institutions 

of  insti- 

in set  of 

or  of  first 

tutions 

tables 

section  of  set 

I 

Institutions    for    defective     and 

delinquent  children 

8 

3 

47 

2 

Juvenile  detention  homes 

10 

3 

57 

3 

Child-placing  agencies 

7 

3 

7' 

4 

Nonsectarian      orphanages      and 

homes 

30 

3 

90 

5 

General   church   orphanages   and 

homes           

i8 

3 

103 

6 

Catholic  orphanages  and  homes 

21 

3 

119 

7 

Institutions  for  combined  care  of 

adults  and  children     . 

6 

3 

126 

8 

Summary  for  private  child-caring 

institutions 

79 

3 

134 

9 

General  summary  for  all  agencies 

and  institutions   .... 

lOO 

3 

141 

10 

Combined  county  and  state  aid  for 
dependent  children 

I 

150 

II 

Population    and    expense   for   all 

agencies  and  institutions    . 

lOO 

I 

158 

Xll 


GLOSSARY  OF  ABBREVIATIONS 


Chdn. 

Children 

Co. 

County 

Congr, 

Congregate 

Cott. 

Cottage 

Del. 

Delinquent 

Dep. 

Dependent 

Disch. 

Discharge 

Exp. 

Expense 

Fam. 

Family 

Inf. 

Infancy 

Inst. 

Institution  or  institutions 

No.  Number 


Recep. 

Rec'd 

Ret. 

Reception 

Received 

Returned 

Supvn. 

Supervision 

Yr. 

Year 

Xlll 


ALPHABETICAL   REGISTER  OF  AGENCIES  AND 
INSTITUTIONS 


Explanation 

1.  The  agencies  and  institutions  in  this  list  are  arranged 
alphabetically  by  location;  in  the  index  (pp.  237  ff.)  they  are  given 
alphabetically  by  name. 

2.  All  of  the  agencies  and  institutions  are  given  separate 
mention  in  the  text.  The  statement  concerning  each  will  be  found 
in  the  chapter  preceding  the  table  where  the  statistics  are  detailed. 

3.  The  first  reference  is  to  the  page  of  the  text  where  the 
agency  or  institution  is  described;  the  second  is  the  number  of 
the  table  in  which  its  statistics  are  recorded;  the  third  is  the  page 
where  that  table,  or  the  first  section  of  its  set,  appears.  If  not 
tabulated  the  page  reference  is  only  to  the  account  in  the  text. 


Location  and  name 

Descriptive 

text 

Table 

No. 

No. 

Page 

I 
.2 

3 
4 

5 

6 

A 
Alameda,  Alameda  Co. 

California  Girls'  Training  Home     . 
Anaheim,  Orange  Co. 

St.  Catherine's  Orphanage         .... 

B 
Bairdstown,  Los  Angeles  Co. 

Hillcrest  Rest  Cottage 

Bakersfieid,  Kern  Co. 

Kern  County  Children's  Shelter     . 
Berkeley,  Alameda  Co. 

Charity  Organization  Society    .... 

C 

Chino,  San  Bernardino  Co. 

California  George  Junior  Republic       .      . 

44 
107 

125 
76 
169 

45 

1 
6 

4 

I 

47 
119 

90 

47 

xiv 


REGISTER   OF   AGENCIES   AND    INSTITUTIONS 


Table 

No. 

Location  and  name 

Descriptive 
text 

No. 

Page 

E 

Eldridge,  Sonoma  Co. 

7 

Sonoma  State  Home 

Eureka,  Humbolt  Co. 

42 

1 

47 

8 

Juvenile  Detention  Home          .... 

F 
Fresno,  Fresno  Co. 

55 

9 

Fresno  County  Humane  Society     . 

171 

lO 

Fresno  County  Orphanage         .... 

76 

4 

90 

II 

Juvenile  Detention  Home          .... 

G 

Gardena,  Los  Angeles  Co. 

51 

2 

57 

12 

McKinley  Industrial  Home       .... 
Gilroy,  Santa  Clara  Co. 

76 

4 

90 

•3 

I.  0.  O.  F.  Orphans'  Home        .... 

77 

4 

90 

•4 

St.  Mary's  Academy  and  Home 
Grass  Valley,  Nevada  Co. 

107 

6 

119 

13 

St.  Mary's  Orphanage 

108 

6 

119 

1 6 

St.  Patrick's  Orphanage 

'.1 
lone  (P.  0.  Waterman),  Amador  Co. 

108 

6 

119 

'7 

Preston  School  of  Industry        .... 

L 

Lomita  Park,  San  Mateo  Co. 

43 

I 

47 

i8 

Bertha  Juilly  Home* 

Long  Beach,  Los  Angeles  Co. 

77 

4 

90 

19 

Long  Beach  Day  Nursery    .      .      .      . 
Lordsburg,  Los  Angeles  Co. 

162 

20 

David  and  Margaret  Home       .... 
Los  Angeles.  Los  Angeles  Co. 

96 

5 

103 

2! 

Belle  White  Homej         ...... 

78 

4 

90 

22 

Big  Brother  Work 

162 

23 

Castelar  Street  School  Day  Nursery    . 

162 

24 

Children's  Home  Society  of  California 

64 

3 

71 

25 

Children's  Hospital 

'73 

26 

Church  Home  for  Children  of  the  Protestant 
Episcopal  Church        

102 

27 

Colored  Children's  Day  Nursery 

Ysr- 

28 

First  Street  School  Day  Nursery    . 

162 

29 

Florence  Crittenton  Home         .... 

123 

7 

126 

30 

Frances  DePauw  Spanish  Industrial  School 

96 

5 

103 

31 

Home  of  the  Guardian  Angel    . 

108 

6 

119 

*  Closed  in  1913  by  order  of  the  court, 
t  Closed  in  1914  by  order  of  the  court. 


XV 


REGISTER   OF    AGENCIES   AND    INSTITUTIONS 


No. 


Location  and  name 


Descriptive 
text 


Table 


No. 


32 
33 
34 
35 
36 
37 
38 
39 
40 

41 
42 

43 
44 
45 
46 

47 
48 

49 
50 

51 
52 

53 


54 
55 
56 


57 
58 
59 

60 
61 
62 

63 
64 
65 
66 

67 

68 


House  of  the  Good  Shepherd    .... 
Humane  Society  for  Children    .... 

Ida  Straus  Day  Nursery 

Japanese  Humane  Society  Children's  Home 

Jewish  Orphans'  Home 

Juvenile  Hall 

King's  Daughters'  Day  Nursery     . 
Lark  Ellen  News  and  Working  Boys'  Home 
Los  Angeles  Orphan  Asylum     .... 
Los  Angeles  Orphans'  Home     .... 

Maud  B.  Booth  Home 

Pisgah  Home  for  Homeless  Children    . 
Regina  Coeli  Orphan  Asylum    .... 

St.  Anne's  Infant  Asylum 

St.  Elizabeth's  Day  Nursery     .... 
Spanish  Mission  Home  and  School 
Strickland's  Home  for  Boys      .... 

Truelove  Home 

United  Charities 

Utah  Street  School  Day  Nursery    . 
.Woman's  Alliance  Maternity  Cottage 
Lytton,  Sonoma  Co. 

Boys'  and  Girls'  Industrial  Home  and  Farm 

M 
Martinez,  Contra  Costa  Co. 

Juvenile  Detention  Home 

Mission  San  Jose,  Alameda  Co. 

St.  Mary's  Orphanage 

Monterey,  Salinas  Co. 

Juvenile  Detention  Home 

O 

Oakland,  Alameda  Co. 

Baby  Hospital  of  Alameda  County 

Beulah  Home 

Catholic   Ladies'   Aid   Society  of  Alameda 

County 

Chabot  School  of  Domestic  Arts    . 

Crouch's  Infant  Shelter 

Fred  Finch  Orphanage 

Juvenile  Detention  Home  .... 

Ladies'  Relief  Society 

Mary  R.  Smith  Cottages 

Oakland  Associated  Charities    .... 
Sisters  of  the  Holy  Family 

Day  Nursery  and    Kindergarten   (Eighth 

and  Chestnut  Streets) 

West  Oakland  Home 


46 

65 
163 

89 

95 

52 

163 

78 

109 

78 

102 

.63 

109 

163 

164 

98 

79 

123 

169 

164 

173 


55 

1 10 

6 

55 

174 

124 

7 

170 

79 
80 

4 
4 

97 

5 

5' 
80 

2 
4 

95 
66,  169 

5 
3 

164 
80 

4 

XVI 


REGISTER  OF   AGENCIES   AND    INSTITUTIONS 


Location  and  name 


Descriptive 
text 


Table 


No. 


Page 


P 
Pasadena,  Los  Angeles  Co. 

Children's  Training  Society       .... 
National  Industrial  and  Orphans'  School 
Pasadena  Day  Nursery 

R 
Redlands,  San  Bernardino  Co. 

Redland's  Day  Nursery 

Riverside,  Riverside  Co. 

Juvenile  Detention  Home 

Sherman  Institute 

Rutherford,  Napa  Co. 

St.  Joseph's  Agricultural  Institute 

S 
Sacramento,  Sacramento  Co. 

Home  of  the  Merciful  Savior    .... 
Juvenile  Detention  Home  .... 

Peniel  Rescue  Home 

Sacramento  Orphanage  and  Children's  Home 
Stanford-Lathrop  Memorial  Home 
St.  Vincents,  Marin  Co. 

St.  Vincent's  Orphan  Asylum    .... 
San  Anselmo,  Marin  Co. 

Presbyterian  Orphanage  and  Farm 
San  Bernardino,  San  Bernardino  Co. 

Juvenile  Detention  Home  .... 

St.  Catherine's  Orphan  Asylum 
San  Bernardino  Orphans'  Home     . 
San  Diego,  San  Diego  Co. 

Children's  Home  Association     .... 

Helping  Hand  Nursery         

Holly  Sefton  Memorial  Hospital     . 
Juvenile  Detention  Home  .... 

San  Francisco,  San  Francisco  Co. 

Associated  Charities 

Boys'  and  Girls'  Aid  Society     .... 
California    Society    for   the    Prevention    of 

Cruelty  to  Children 

Catholic  Humane  Bureau 

Day  Nursery  and  Free  Kindergarten  (Oak- 
wood  and  Eighteenth  Streets) 
Day  Nursery  and  Free  Kindergarten  (Po- 

trero  Street)        

Children's  Agency  of  the  Associated  Char- 
ities         

Chinese  Mission  Home        


8i 
164 


165 

52 
39 


lOO 

53 
124 
82 

1 11 

III 
99 

53 

1 12 

82 

83 

83 

174 

55 

170 

84 

172 
67 

165 

165 

67 
99 


90 
90 


57 
119 


103 

57 
126 

90 
119 

119 

103 

57 
119 
90 

90 
90 


90 
7« 


7' 
103 


XVll 


REGISTER  OF   AGENCIES   AND    INSTITUTIONS 


No. 


Location  and  name 


Descriptive 
text 


Table 


No. 


98  Columbia  Park  Boys'  Club 

99  Ellen  Stark  Ford  Home 

100  Eureka  Benevolent  Society 

101  Florence  Crittenton  Home 

102  Gladys  Settlement  and  School  . 

103  Good  Samaritan  Day  Nursery 

104  Happy  Day  Home  for  Children 

105  Hospital  for  Children 

106  Infant  Shelter 

107  Juvenile  Detention  Home 

108  Ladies'  Protection  and  Relief  Society 

109  Lane  Hospital — Children's  Clinic 
MO  McKiniey  Orphanage     .... 

111  Maria  Kip  Orphanage    .... 

112  Mary's  Help — Children's  Clinic 

113  Maud  B.  Booth  Home    .... 

114  Mount  St.  Joseph's  Infant  Orphan  Asyl 

115  Mt.  Zion   Hospital — Children's  Clinic 

116  Native  Sons'  and  Native  Daughters'  Central 

Committee 

117  Oriental  Home 

118  Pacific  Hebrew  Orphanage 

1 19  Pacific  Humane  Society 

120  People's  Place 

121  Roman  Catholic  Orphan  Asylum 

122  St.  Catherine's  Home 

123  St.  Francis  Girls'  Directory 

124  St.  Francis  Technical  School 

125  San  Francisco  Babies'  Aid  . 

126  San   Francisco  Nursery  for  Homeless  Chil- 

dren         

127  San  Francisco  Protestant  Orphan  Asylum 
Sisters  of  the  Holy  Family 

128  Day  Nursery  and    Kindergarten   (Green- 

wich and  Divisidaro  Streets) 

129  Day     Nursery    and     Kindergarten     (860 

Hayes  Street) 

130  Day    Nursery    and    Kindergarten    (1431 

Powell  Street) 

131  Day  Nursery  and    Kindergarten    (Eight- 

eenth and  Point  Lobos  Avenues)  . 

132  Telegraph  Hill  Neighborhood  Association 

133  University    of    California     Hospital — Chil- 

dren's Clinic 

134  Youths'  Directory 

San  Gabriel,  Los  Angeles  Co. 

135  Southern  California  Masonic  Orphanage  . 


165 

97 

68 

124 

166 

166 

166 

175 

84 

53 

85 

•75 

98 

100 

>75 
102 
1 12 
«75 

69 
98 
96 
171 
166 
1 12 
46 
«"3 
113 
85 

86 
87 


167 

167 

167 

167 
167 

'75 
114 

87 


XVllI 


REGISTER   OF   AGENCIES   AND   INSTITUTIONS 


Location  and  name 


Descriptive 
text 


Table 


No.      Page 


San  Jose,  Santa  Clara  Co. 

Florence  Crittenton  Home 

Home  of  Benevolence     .... 

Juvenile  Detention  Home    . 

Sisters  of  the  Holy  Family 
Day  Nursery  and  School 
San  Mateo,  San  Mateo  Co. 

Armitage  Orphanage*     .... 
Santa  Ana,  Orange  Co. 

Juvenile  Detention  Home    . 
Santa  Barbara,  Santa  Barbara  Co. 

Associated  Charities        .... 

Juvenile  Detention  Home    . 

St.  Vincent's  Institution 
Santa  Cruz,  Santa  Cruz  Co. 

Santa  Cruz  Female  Orphan  Asylum 
Santa  Rosa,  Sonoma  Co. 

Juvenile  Detention  Home    . 
South  Pasadena,  Los  Angeles  Co. 

Boys'  and  Girls'  Aid  Society 
Stockton,  San  Joaquin  Co. 

Associated  Charities        .... 

Juvenile  Detention  Home 

Stockton  Children's  Home 
Susanville,  Lassen  Co. 

Juvenile  Detention  Home 

U 
Ukiah,  Mendocino  Co. 

Albertinium  Orphanage 

V 
Vallejo,  Solano  Co. 

Good  Templars'  Home  for  Orphans 
Ventura,  Ventura  Co. 

California  School  for  Girls   . 

Juvenile  Detention  Home 

W 
Watsonville,  Santa  Cruz  Co. 

St.  Francis'  Orphanage 
Whittier,  Los  Angeles  Co. 

Whittier  State  School     .... 


125 

88 
56 

168 

lOI 

55 

170 

54 

H5 

H5 

56 


170 

56 


52 


116 


43 
55 


ii6 

44 


126 
90 


103 


57 
119 

119 


90 

90 
57 

119 

90 

47 
57 

119 

47 


*  Closed  in  1913;  may  not  reopen. 


XIX 


PART  ONE 
PRELIMINARIES 


Science  is  a  social  work,  and  its  structure  is  built  by  the  associated 
labors  of  the  entire  fraternity  of  theorists  and  practical  workers.  .  .  . 
The  novelist  is  free  to  fly  in  air,  while  the  statistician,  the  economist,  and 
the  sociologist  must  walk  on  solid  earth,  close  to  facts,  and  the  successful 
reformer  is  limited  by  the  conditions  of  actual  life. — Charles  R.  Henderson. 

1  went  into  a  hospital  the  other  day.  I  witnessed  a  parable.  A  pale, 
weak,  bloodless  man  was  carried  in.  He  was  not  strong  enough  to  walk. 
He  did  not  even  come  of  his  own  volition.  Following  him  came  a  great, 
strong,  stalwart  man,  glowing  with  health.  They  brought  them  together. 
They  bared  an  arm  of  each  man.  They  brought  them  into  fellowship  by  a 
conductor  which  carried  the  rich  blood  of  the  strong  into  the  frail  body  of 
the  weak.  That  is  the  meaning  of  spiritual  culture  and  social  service. — 
Charles  S.  Macfarland. 

Never  was  there  so  rich  a  field  open  for  hygienic,  eugenic,  physiologi- 
cal, pathological,  anthropological,  psychological,  sociological,  statistical  and 
experimental  study  and  research  as  that  which  is  constituted  by  the  inmates 
of  (children's)  institutions.  .  .  .  There  is  no  glimmer  of  knowledge  you 
have  ever  acquired  in  the  field  of  any  or  all  of  the  ologies  just  enumerated 
that  will  not  sometime  with  some  problematic  boy  or  girl  come  most  oppor- 
tunely handy,  and  may  indeed  save  a  soul  to  civic  usefulness. — G.  Stanley 
Hall. 

The  survey  is  the  study  and  analysis  of  social  conditions,  as  the  physi- 
cians diagnose  cases.  The  doctor  of  old  diagnosed  his  case  into  measles  or 
typhoid,  and  gave  the  designated  treatment.  The  modern  doctor  carries 
his  analysis  one  step  further  back.  Through  research  he  discovers  the 
bacillus  that  produced  the  disease,  and  the  serum  that  will  destroy  it.  Let 
us  realize  that  it  is  impossible  to  deal  scientifically  with  social  ills  until  we 
have  the  same  sort  of  diagnosis.  Dependency  and  delinquency  cannot  be 
treated  successfully  as  things  in  themselves  any  more  than  typhoid.  They 
are  mere  phenomena,  and  the  cure  must  go  back  to  the  causes.  Orphan 
asylums  and  reformatories  cannot  solve  the  problem;  they  can  only  take 
care  of  the  product.  The  modern  survey  is  as  essential  as  medical  diagnosis, 
but  it  must  go  beyond  the  simple  and  obvious  to  the  very  roots  of  our  social 
difficulties.  This  method  of  the  survey  has  been  recognized  as  necessary  in 
medicine  and  in  some  other  fields,  but  it  should  be  the  universal  modern 
method,  the  first  step  in  every  social  movement. — Henry  S.  Curtis. 


INTRODUCTION 

By  Hastings  H.  Hart,  LL.D. 
Director  Department  of  Child-Helping  of  the  Russell  Sage  Foundation 

CALIFORNIA  has  made  lavish  provision  for  her  dependent, 
defective,  and  delinquent  children.  The  magnitude  of 
her  activity  in  their  behalf  is  a  tribute  to  the  generosity 
of  her  people. 

In  the  accompanying  Table  A  is  shown  the  institutional  pro- 
vision made  for  children  of  these  classes  in  seven  of  the  most 
liberal  states  of  the  Union:  California,  Pennsylvania,  New  York, 
Maryland,  New  Hampshire,  Ohio,  and  Massachusetts.  It  appears 
from  this  table  that  California  is  providing  for  more  than  9,000 
children  in  institutions,  381  for  each  100,000  inhabitants.  In  this 
ratio  she  is  the  second  state  in  the  Union,  being  exceeded  only 
by  the  state  of  New  York. 

California  stands  second  again  in  the  amount  expended  for 
each  100,000  people  in  the  maintenance  of  children  in  institutions. 
She  expends  ^75,000  per  year  for  each  100,000  inhabitants  as 
against  |6o,ooo  for  Massachusetts,  the  state  ranking  third,  and 
about  142,000  for  the  least  liberal  of  the  seven  states,  Ohio  and 
New  Hampshire. 

California  stands  fourth  of  the  states  of  the  Union  in  the 
proportionate  amount  of  money  invested  in  institutions  for  the 
care  of  such  children.  She  has  invested  $445,600  for  each  100,000 
people.  Her  investments  in  proportion  to  her  population  are  less 
than  one-half  as  large  as  the  corresponding  investments  in  Pennsyl- 
vania, and  less  than  three-fourths  as  large  as  those  in  New  York, 
but  they  are  nearly  twice  as  large  as  those  of  the  great  states  of 
Ohio  and  Massachusetts. 

A  careful  study  of  the  work  in  different  states  has  resulted  in 
the  conviction  that  institutional  provision  for  children  in  California 
as  well  as  in  New  York,  Pennsylvania,  New  Hampshire,  and  Mary- 
land is  excessive  and  is  due  to  a  failure  to  develop  those  plans  of 

3 


CHILD   WELFARE    WORK    IN    CALIFORNIA 

TABLE   A.— INSTITUTIONS    FOR    DEPENDENT.   DELINQUENT,    AND    DEFEC- 
TIVE  CHILDREN   IN   SEVEN   STATES* 


Children  in  institutions 


New  York 

California 

Maryland 

Ohio     .      .      . 

New  Hampshire 

Pennsylvania 

Massachusetts 


48,400 
9.0S7 
4.389 

IS. 570 
1.375 

21,859 
7.935 


531 
381 
339 
327 
319 
28s 
236 


State 


Current  expenses  of  children's  institutions 


Total  *> 


Amount  per  100,000 
inhabitants 


New  York 18,027,000 

California 1,783,519 

Massachusetts 2,021,000 

Pennsylvania 4,183,000 

Maryland 671,000 

Ohio 2,008,000 

New  Hampshire 181,000 


188,100 
75, 016 
60,000 
54.600 
51,800 
42,100 
42,000 


Amounts  invested  in  children's  institutions 


Pennsylvania $75,879,000 

New  York 56,745,000 

Maryland 6,644,000 

California 10,594,000 

New  Hampshire 1,650,000 

Ohio 12,780,000 

Massachusetts 8,290,000 


$989,900 
622,600 
512,900 
445.600 
383.200 
268,100 
246,300 


»  The  figures  are  given  for  both  public  and  private  institutions.  They  cover  the  nearest 
year  to  1912  obtainable,  ranging  from  1910  to  1913. 

*>  The  statements  are  approximate  for  New  York,  Ohio,  and  New  Hampshire;  the  figures 
for  institutions  not  listed  by  the  United  States  Census  or  state  reports  being  partly  estimated. 


dealing  with  dependent  children  which  have  minimized  the  insti- 
tutional provision  for  such  children  in  states  like  Massachusetts, 
Michigan,  Minnesota,  and  Washington,  In  these  states  the  larger 
portion  of  dependent  and  delinquent  children  are  placed  in  the 
friendly  environment  of  family  homes  after  the  briefest  possible 
stay  in  institutions;  but  in  California,  as  in  New  York  and  Mary- 


INTRODUCTION 

land,  the  institutional  plan  of  bringing  up  children  in  orphan 
asylums  and  children's  homes  has  prevailed. 

California  has  had  a  number  of  child-placing  societies  but 
most  of  them  have  been  poorly  supported,  some  of  them  have  been 
inefficient,  while  others  have  been  positively  disreputable.  There 
are  only  two  efficient  placing-out  organizations  in  the  state:  the 
Children's  Home  Society  of  California  and  the  Native  Sons'  and 
Native  Daughters'  Central  Committee.  The  Children's  Home 
'Society  of  California  expended  $31,000  in  1914;  and  the  Native 
Sons'  and  Native  Daughters'  $6,500;  a  total  of  $37,500.  The 
Children's  Home  Society  placed  in  families  365  children  and  the 
Native  Sons'  and  Native  Daughters'  195;  a  total  of  560.  The 
Children's  Home  Society  reported  under  supervision  on  March  31, 
1914,  564  children  and  the  Native  Sons'  and  Daughters'  248;  a 
total  of  812.  There  are  other  efficient  societies  which  board  out 
children  temporarily  in  family  homes  but  place  very  few  perma- 
nently. 

On  the  other  hand,  69  orphanages  and  children's  homes 
which  contained  6,511  children  had  placed  in  families  during  the 
year  only  381  children  and  reported  under  supervision  in  family 
homes  only  715. 

The  state  of  California  needs  to  foster  and  develop  its  child- 
placing  societies  and  to  give  them  such  support  as  will  enable  them 
to  maintain  the  highest  standards  and  to  care  for  their  wards  with 
the  utmost  degree  of  fidelity  and  efficiency. 

Comparison  of  Institution  Work 

Table  B  compares  the  institutional  provision  for  dependent, 
delinquent,  feeble-minded,  and  crippled  children  in  the  four  states 
of  New  York,  California,  Maryland,  and  Pennsylvania,  indicating 
the  number  of  children  cared  for,  the  annual  expense  per  child, 
and  the  annual  expense  per  100,000  inhabitants  for  each  class  of 
children.  While  the  number  of  children  and  the  annual  expense 
are  much  larger  in  New  York  than  in  California,  when  these  items 
are  reduced  to  ratios  California  approaches  New  York. 

It  will  be  seen  that  there  were  reported  in  the  state  of  New 
York  dependent,  delinquent,  feeble-minded,  and  crippled  children 
in  institutions  to  the  number  of  48,400;  in  California,  9,057;  in 

5 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

TABLE  B.— COMPARISON  OF  INSTITUTIONS  FOR  DEPENDENT.  DELINQUENT, 
AND   DEFECTIVE   CHILDREN   IN   FOUR  STATES* 


New  York 


California 


Maryland      Pennsylvjinia 


NiJMBER  OF  Inhabitants 


9,113,600 


1.295,300         7,665,100 


Average  Number  of  Children 
Reported  in  Institutions 

Number 

'      Dependent 37.267 

Delinquent 6,146 

Feeble-minded 3.802 

Crippled 1,185 

Total 48,400 

Number  per  100,000  inhabitants 

Dependent 408.9 

Delinquent 67.4 

Feeble-minded 41  •  7 

Crippled 13.0 

Total 531   I 

Expense  of  Care  of  Children  in 
Institutions 

Amount 

Dependent I5.68s.700 

Delinquent i,333.900 

Feeble-minded 733. 600 

Crippled 273,800 

Total $8,027,000 

Amount  per  100.000  inhabitants 

Dependent I62.380 

Delinquent 14,640 

Feeble-minded 8,050 

Crippled 3.005 

Total $88,075 

Amount  per  child 

Dependent $IS3 

Delinquent 217 

Feeble-minded 193 

Crippled 231 

Total I166 


6,900 

2,197 

15.576 

1,221 

1.780 

2,900 

936 

329 

3. 114 

83 

269 

4.389 


21,859 


90.2 

169.6 

203.2 

SI. 4 

137.4 

37.8 

39-4 

25.4 

40.6 

6.4 

3-5 

380.9 


338.8 


285.2 


$1,096,655 
507.082 
179.782 


$326,998 

248.890 
57,007 
38.594 


$2,747,177 
590,036 
682,119 
163,920 


$1,783,519 


$671,489        $4,183,252 


$46,126 

$25,245 

$35,840 

21.328 

19.215 

7,700 

7.562 

4.401 

8,900 

2.979 

2,140 

$75.0x6 


$51,840 


$54,580 


$IS9 

$149 

$176 

41S 

140 

203 

192 

173 

219 

46s 

609 

$197 


$153 


$191 


» Including  public  and  private  institutions. 


Cadets  Assembled  before  Main  Building 


Trades  Building 
Preston  School  of  Industry,   lone  (P.  O.  Waterman).     (See  p.  43) 


West  Cottase 


Football   1  earn 
Preston  School  of  Industry,  lone  (P.  O.  Waterman).     (See  p.  43) 


INTRODUCTION 

Maryland,  4,389;  and  in  Pennsylvania,  21,859.  The  total  number 
of  children  reported  in  institutions  out  of  each  100,000  inhabitants 
was  as  follows:  New  York,  531;  California,  381;  Maryland,  339; 
and  Pennsylvania,  285. 

The  average  current  expense  for  each  child  was  as  follows: 
New  York,  ^166;  California,  ^197;  Maryland,  ^153;  and  Pennsyl- 
vania, ^191. 

The  amount  of  current  expense  in  children's  institutions  for 
each  100,000  inhabitants  was  as  follows:  New  York,  188,075;  Cali- 
fornia, 175,016;  Maryland,  $51,840;  and  Pennsylvania,  154,580. 

Dependent  Children  in  Institutions.  The  number  of 
dependent  children  in  institutions  for  each  100,000  inhabitants  in 
the  states  named  is  approximately  as  follows:  New  York,  409; 
California,  290;  Maryland,  170;  Pennsylvania,  203.  The  expense 
of  caring  for  dependent  children  in  institutions  for  each  100,000  in- 
habitants is:  New  York,  $62,380;  California,  $46,126;  Maryland, 
$25,245 ;  Pennsylvania,  $35,840.  The  expense  per  child  in  institu- 
tions for  dependent  children  is:  New  York,  $153;  California,  $159; 
Maryland,  $149;  and  Pennsylvania,  $176. 

Delinquent  Children  in  Institutions.  The  number  of 
delinquent  children  in  institutions  for  each  100,000  inhabitants 
in  the  states  named  is  approximately  as  follows:  New  York,  67; 
California,  51;  Maryland,  137;  Pennsylvania,  38.  The  expense  of 
caring  for  delinquent  children  in  reformatories  for  each  100,000 
inhabitants  is:  New  York,  $14,640;  California,  $21,328;  Maryland, 
$19,215;  Pennsylvania,  $7,700.  The  expense  per  child  in  institu- 
tions for  delinquent  children  is:  New  York,  $217;  California,  $415; 
Maryland,  $140;  Pennsylvania,  $203. 

Feeble-minded  Children  in  Institutions.  The  number 
of  feeble-minded  children  in  institutions  for  each  100,000  inhab- 
itants in  the  states  named  is  approximately  as  follows:  New  York, 
42;  California,  39;  Maryland,  25;  Pennsylvania,  41.  The  expense 
for  caring  for  feeble-minded  children  in  institutions  for  each  100,000 
inhabitants  is:  New  York,  $8,050;  California,  $7,562;  Maryland, 
$4,401 ;  Pennsylvania,  $8,900.  The  expense  per  child  in  institu- 
tions is:  New  York,  $193;  California,  $192;  Maryland,  $173;  Penn- 
sylvania, $219. 

Crippled    Children    in    Institutions.     The    number    of 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

crippled  children  in  institutions  for  each  100,000  inhabitants  in 
the  states  named  is  approximately  as  follows:  New  York,  13; 
California,  none;  Maryland,  6.4;  Pennsylvania,  3.5.  The  expense 
for  caring  for  crippled  children  for  each  100,000  inhabitants  is: 
New  York,  ^3,005;  California,  none;  Maryland,  $2,979;  Pennsyl- 
vania, $2, 140.  The  expense  per  child  in  institutions  is:  New  York, 
$231 ;  California,  none;  Maryland,  $465;  Pennsylvania,  5^609. 

The  Subsidy  System  in  California 

California,  in  common  with  New  York,  Pennsylvania,  and 
Maryland,  has  for  many  years  followed  the  plan  of  subsidizing 
private  institutions  for  children  from  the  public  treasury  to  a 
larger  degree  than  other  states.  In  California,  as  in  the  other 
three  states,  this  policy  has  resulted  in  multiplying  unduly  the 
number  of  institution  children  so  that,  as  we  have  seen,  California, 
which  is  an  agricultural  state,  has  a  ratio  of  381  children  out  of 
100,000  inhabitants  in  institutions,  a  ratio  which  is  exceeded  only 
in  the  state  of  New  York,  which  has  531.  The  effect  of  this  policy 
is  indicated  in  the  fact  that,  according  to  the  United  States  Census 
Report  on  Benevolent  Institutions  in  1910,  California  had  nearly 
five  times  as  many  dependent  children  in  institutions  in  proportion 
to  its  population  as  were  found  in  Washington,  three  times  as  many 
as  were  found  in  Oregon,  and  from  three  to  four  times  as  many 
as  were  found  in  states  like  Michigan,  Wisconsin,  and  Minnesota. 

The  results  of  the  subsidy  system  are  shown  in  Table  C 
which  follows,  from  which  it  appears  that  California  ranks  next 
to  the  state  of  New  York  in  the  relative  number  of  children  and 
the  amount  for  maintenance  of  children  in  subsidized  institutions, 
and  also  in  the  amount  of  public  funds  given  to  subsidized  insti- 
tutions for  children.  But  besides  this  excessive  amount  of  subsi- 
dies to  private  institutions,  aggregating  555367,000,  there  are  as  we 
shall  see  later  on,  additional  public  appropriations  of  $304,000 
for  the  maintenance  of  children  either  in  their  own  homes  or  in 
boarding  homes.  Until  the  year  191 1  there  was  no  system  of 
public  supervision  of  these  vast  appropriations. 

The  number  of  children  maintained  in  subsidized  institu- 
tions in  191 2,  in  the  four  states  named,  per  100,000  inhabitants 
was  as  follows:   New  York,  336;  California,  256;  Maryland,   176; 

8 


INTRODUCTION 


TABLE  C. 


-SUBSIDIES   TO   INSTITUTIONS    FOR    DEPENDENT    CHILDREN    IN 
FOUR  STATES" 


New  York        California 


Maryland      Pennsylvania 


All  Subsidized  Institutions 

Number  of  institutions     ...  114 

Average  number  of  children  in  care 

2  Number 30.593 

3  Number  per  institution    .  _  268 

4  Number  per  100,000  inhabi-  335-7 

tants 

Expense  of  care  of  children  in  insti- 
tutions 

5  Amount $4,596,110 

6  Amount  per  child  ...  150 

7  Amount  per  100, ouo  inhabi-  50,431 

tants 

Public  funds 

8  Amount $3,195,787 

9  Amount  per  institution    .  28,033 

10  Amount  per  child  ...  104 

11  Amount  per  100,000  inhabi-  35, 066 

tants 

Subsidized  Catholic  Institutions 

Number  of  institutions     ...  58 

Average  number  of  children  in  care 

2  Number 21,894 

3  Number  per  institution    .  377 

4  Number  per  100,000  inhabi-  240.2 

tants 

Expense  of  care  of  children  in  insti- 
tutions 

5  Amount $3,006,890 

6  Amount  per  child  137 

7  Amount  per  100,000  inhabi-  32.993 

tants 

Public  funds 

8  Amount $2,356,330 

9  Amount  per  institution    .  40,626 

10  Amount  per  child        .      .  108 

11  Amount  per  100,000  inhabi-  25,855 

tants 

Subsidized   Non-Catholic    Insti- 
tutions 

'    Number  of  institutions     ...  56 
Average  number  of  children  in  care 

2  Number 8,699 

3  Number  per  institution    .  155 

4  Number  per  100,000  inhabi-  95.5 

tants 

Expense  of  care  of  children  in  insti- 
tutions 

5  Amount $1,589,220 

6  Amount  per  child        .      .  183 

7  Amount  per  100,000  inhabi-  17,438 

tants 

Pubic  funds 

8  Amount $839,457 

9  Amount  per  institution    .  14,990 

10  Amount  per  child        .  97 

11  Amount  per  100,000  inhabi-  9,211 

tants 


81 


6,079 
107 
256.0 

2,284 
95 
176.3 

6,139 
76 
80.1 

$933,637 

154 
39,261 

$281,143 

123 

21.704 

$816,644 

133 

10,654 

$367,390 

6,445 

60 

15,449 

$90,662 
3,778 

6,999 

$285,921 

3,530 

47 

3.730 

16 


2,923 

183 

123.0 

1,438 
144 
III  .0 

3,543 
186 
46.2 

$351,165 

120 
14,767 

$151,105 

I  OS 

1 1, 66s 

$350,098 

99 

4. 567 

$208,749 
13.047 

71 
8.778 

$56,766 

5,677 

39 

4.382 

$70,036 

3,686 

20 

914 

41 


14 


62 


3,156 

77 
133 . 0 

846 
60 
65.3 

2,596 
42 
33-9 

$582,472 

18S 

24,494 

$130,038 

154 

10,039 

$466,546 

180 

6,087 

$1.58,641 

3,869 

50 

6,671 

$33,896 
2,421 

2,617 

$215,885 

3,482 

83 

2,816 

•  Including  private  institutions  only. 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

Pennsylvania,  80.  The  expense  per  100,000  inhabitants  of  caring 
for  children  in  subsidized  institutions  was:  New  York,  $50,431; 
California,  $39,261;  Maryland,  $21,704;  and  Pennsylvania,  $10,- 
654.  The  amount  of  public  funds  given  to  subsidized  institutions 
per  100,000  inhabitants  was:  New  York,  $35,066;  California, 
$15,449;  Maryland,  $6,999;  ^ind  Pennsylvania,  $3,730. 

It  will  be  noticed  that  while  the  expense  per  child  of  main- 
taining children  in  the  subsidized  institutions  of  California  ($154) 
is  greater  than  in  New  York  ($150),  the  amount  appropriated  per 
child  in  California  is  only  $60  as  against  $104  in  New  York.  This 
means  that  private  citizens  contribute  a  larger  proportion  of  the 
expense  of  maintaining  the  subsidized  orphan  asylums  in  Cali- 
fornia than  in  New  York.  It  will  be  noticed  also  that  while  the 
amount  of  public  funds  appropriated  for  subsidized  institutions 
per  100,000  inhabitants  in  California  ($15,449)  's  less  than  half 
the  amount  in  New  York  ($35,066),  it  is  still  more  than  four  times 
as  much  as  in  Pennsylvania  ($3,730). 

Aid  to  Mothers  and  Children 

But  with  these  subsidies  for  children  in  institutions  only  a  part 
of  the  story  is  told.  For  many  years  California  has  made  generous 
appropriations  in  aid  of  children  in  family  homes.  This  system  of 
appropriations  has  taken  the  form  partly  of  "outdoor  relief "  to  needy 
families  in  their  own  homes,  which  prevails  in  most  states;  partly 
of  funds  for  the  payment  of  the  board  of  children  in  family  homes 
in  accordance  with  the  methods  pursued  in  Massachusetts,  Penn- 
sylvania, New  Jersey,  and  the  District  of  Columbia;  and  partly  of 
"mothers'  pensions,"  designed  to  enable  worthy  and  efficient 
mothers  to  care  for  their  children  in  their  own  homes  instead  of 
turning  them  over  to  an  orphan  asylum  or  a  children's  home. 

Until  Dr.  Slingerland's  study  was  made  it  was  impossible  to 
ascertain  how  much  was  actually  being  expended  from  public  funds 
for  the  care  of  children,  except  those  from  the  state  treasury. 
The  official  statements  of  the  counties  did  not  separate  these 
expenditures  from  other  expenditures  in  behalf  of  the  poor.  Dr. 
Slingerland  obtained  the  facts  for  the  first  time  by  months  of 
correspondence  and  study  of  reports,  and  partly  by  visiting  per- 
sonally 36  counties  and  digging  the  information  out  of  the  county 

ID 


INTRODUCTION 

records  in  counties  where  the  county  oificials  were  unable  or  un- 
wiUing  to  furnish  detailed  information. 

TABLE    D.— STATE   AND   COUNTY   AID    FOR   DEPENDENT    CHILDREN 
IN  CALIFORNIA,  1911 


Beneficiaries  and  source 

of  aid 

Aid  granted 

Aid  for  children  in  private  institutions 

$248,599 
126,179 

Total  to  children  in  institutions 

$374,778 

Aid  for  children  in  family  homes 

$180,801 
123.451 

Total  to  children  in  family  homes 

$304,252 

$679,030 

Help  to  children  in  families  has  been  largely  increased  by  the 
widows'  pension  law  of  1911  and  191 3.  Advocates  of  this  legis- 
lation have  anticipated  that  it  would  lead  to  a  great  diminution  in 
the  number  of  children  in  orphanages  and  in  the  expense  of  caring 
for  them,  but  thus  far  these  anticipations  have  not  been  realized. 
The  surprising  increase  in  expenditures  for  the  maintenance  of 
institution  children  in  San  Francisco  in  191 3-14  is  disappointing. 

The  public  supervision  of  institutions  and  of  children  main- 
tained at  public  expense  either  in  institutions  or  in  families  should 
be  faithfully  maintained.  It  should  not  be  allowed  to  become 
perfunctory  nor  should  it  be  pursued  solely  with  a  view  to  financial 
economy.  It  should  be  carried  on  with  the  most  conscientious 
fidelity  and  in  the  most  human  and  humane  spirit  by  agents 
selected  with  reference  both  to  their  efficiency  and  their  conse- 
crated devotion.  The  great  Mother  State  having  taken  the  chil- 
dren under  her  sheltering  care  must  not  fail  to  insure  to  them  not 
only  proper  food,  care,  clothing,  instruction,  and  recreation,  but 
it  must  see  that  they  have  such  vocational  training,  such  opportu- 
nities, such  encouragement  and  stimulus  as  will  lead  to  the  highest 
development  of  which  they  are  capable. 

1 1 


CHAPTER  I 
AN  EXPLANATORY  FOREWORD 

THIS  compendium  sets  forth  the  results  of  a  study  of  the 
child-caring  agencies  and  institutions  of  the  state  of 
California,  made  under  the  direction  of  the  Department 
of  Child-Helping  of  the  Russell  Sage  Foundation,  with  related 
facts  and  suggestions  in  regard  to  child  welfare  work  throughout 
the  state.  Those  outlined  are  the  public  and  private  organiza-? 
tions  founded  and  carried  on  in  behalf  of  children  who  are  neg-^ 
lected,  dependent,  delinquent,  or  defective. 

In  its  broadest  sense  child  welfare  work  includes  all  possible 
provision  for  children  in  the  home,  the  schools,  the  churches,  all 
sorts  of  institutions,  and  society  at  large.  As  used  in  the  title  of 
this  book  and  frequently  in  its  various  chapters,  the  term  has  a 
narrower  signification,  well  understood  by  social  workers.  This 
meaning  limits  its  direct  application  to  preventive  measures  to 
protect  normal  children  and  save  them  from  entering  the  depend- 
ent, delinquent,  and  defective  classes,  and  to  remedial  work  for 
children  who  are  needy,  unfortunate,  or  abnormal,  whose  welfare 
is  sought  by  the  child-caring  agencies  and  institutions. 

So  far  as  is  known,  no  other  publication  has  ever  listed  or 
described  all  of  the  various  institutions  for  these  classes  engaged 
in  beneficent  work  in  their  behalf  in  California.  It  is  believed  that 
the  matters  here  presented  will  be  of  great  interest  to  all  those  who 
are  studying  the  developments  of  recent  years  along  the  line  of 
child-helping,  and  especially  to  those  who  are  actually  engaged  in 
child  welfare  work. 

All  questions  relating  to  the  welfare  of  children  are  closely 
interwoven  with  most  other  problems  of  our  civilization.  Agencies 
dealing  with  children  must  of  necessity  co-operate  with  and  rely 
for  help  upon  other  organized  social  forces.  Children  imply 
parents  and  other  adults,  and  the  elements  of  control,  instruction, 
and  association.    All  the  normal  institutions  of  our  social  order — 

12 


AN    EXPLANATORY    FOREWORD 

the  home,  the  school,  the  church,  society  in  its  general  relations, 
the  courts,  and  the  state — are  inter-related  in  their  efforts  in 
behalf  of  the  rising  generation.  But  such  normal  agencies  often 
prove  ins'ufficient  under  the  stress  of  modern  conditions.  However 
perfect  their  efficiency  or  intimate  their  relationship  to  the  general 
population,  additional  agencies  must  be  provided  to  meet  the 
needs  of  the  abnormal  contingent,  which  is  always  a  considerable 
fraction  of  the  whole. 

No  civilization  yet  developed  is  free  from  social  plagues  and 
destructive  agencies.  No  commonwealth  has  ever  entirely  elimi- 
nated personal  distress,  broken  families,  and  juvenile  dependency. 
As  benevolent  provisions  to  meet  these  social  necessities,  organiza- 
tions and  institutions  have  been  established  in  behalf  of  the  needy, 
the  defective,  and  the  delinquent.  They  provide  for  persons  in 
distress  or  in  peculiar  relational  conditions  for  whom  the  ordinary 
institutions  of  society  are  either  not  suitable  or  are  insufficient. 
Among  them,  those  for  children  are  not  the  least  either  in  number 
or  in  importance. 

It  is  clear  that  the  trend  of  many  forces  must  be  considered 
in  all  intelligent  dealing  with  children  of  the  dependent  classes, 
and  especially  in  all  organized  efforts  for  their  welfare.  As  already 
indicated,  normal  conditions  are  lacking;  natural  resources  are 
not  available;  ordinary  methods  must  be  modified.  Measures 
of  relief  and  development  in  some  degree  must  be  artificial,  and 
added  to  the  usual  and  normal  elements  of  the  social  order.  New 
problems  must  be  solved  relating  to  finance,  location,  shelter, 
methods  of  care,  operation  of  institutions,  and  of  individual, 
corporation,  or  government  control.  The  classes  of  beneficiaries 
must  be  defined,  the  measure  of  segregation  determined,  the  status 
and  legal  relation  of  institutional  wards  settled,  the  kind  and 
quality  of  care  regulated,  and  the  spirit  and  character  of  the 
adults  institutionally  connected  with  them  adjusted  so  as  to 
secure  the  children's  welfare. 

Yet  a  clear  understanding  and  application  of  these  and  other 
important  matters  are  a  social  growth  rather  than  an  immediate 
revelation.  At  first  child  welfare  work  in  America  was  individual- 
istic. Then  it  was  crudely  organized.  Later  it  took  on  more 
definite  form  and  obtained  general  recognition.    Now  it  is  rapidly 

13 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

relating  itself  to  all  the  formal  agencies  of  the  community,  state, 
and  nation.  Tornorrow  it  doubtless  will  be  a  co-operative  part  of 
the  scieatificajly  arranged  preventive  and  remediaL elements  of  an 
advanced^ivilization. 

Gradually  in  recent  generations  system  has  been  added  to 
sentiment,  and  better  business  methods  to  benevolence.  A  cen- 
tury ago  any  provision  for  needy  and  homeless  children  was  wel- 
comed and  appreciated.  The  first  half  of  the  nineteenth  century 
saw  the  establishment  of  hundreds  of  orphanages,  and  institutional 
congregate  care  was  accepted  as  the  best  possible  provision  for 
juvenile  dependents.  The  latter  half  of  that  century  added  the 
systematic  placing  of  dependent  children  in  family  homes  by 
organized  agencies,  and  an  earnest  controversy  as  to  home-finding 
versus  care  in  institutions.  The  first  decade  of  the  new  century 
brought  in  numerous  new  preventive  organizations,  and  especially 
the  juvenile  court.  Today,  after  two  or  three  decades  devoted  to 
change  and  development,  there  are  those  who  think  child  welfare 
organization  somewhat  overdone,  and  a  reaction  inevitable. 

Methods  and  conditions  of  child-caring  work  are  said  to  have 
been  almost  revolutionized  since  the  present  century  began.  So 
radical  are  the  changes,  and  so  rapid  the  progress  of  events,  that 
some  advanced  social  workers  now  hesitate  to  make  positive  recom- 
mendations lest  they  be  outgrown  and  discarded  before  they  are 
actually  tried  out  in  experimental  practice. 

Someone  has  said:  "The  social  service  train  apparently  is 
now  running  regardless  of  station  stops  or  semaphore  signals, 
with  a  color-blind  engineer  and  no  conductor."  This  does  not 
mean  necessarily  a  wreck,  or  failure  to  steadily  advance.  It  does 
imply  the  thought  of  some  that  social  service  should  be  systema- 
tized more  generally  and  less  in  spots;  that  its  terms,  methods,  and 
conditions  the  country  over  should  be  more  closely  harmonized; 
and  that  a  national  agency  of  some  kind  should  be  made  the 
responsible  leader  in  all  lines  of  welfare  work.  Perhaps  the  new 
national  Children's  Bureau  may  in  time  fill  this  last  requirement 
and  become  the  national  "conductor*'  of  the  children's  section 
of  the  social  service  train. 

Three  principal  forces  have  been  potent  to  stimulate  effort 
in  behalf  of  needy  and  unfortunate  children.    First,  the  ministering 

H 


AN    EXPLANATORY    FOREWORD 

spirit  inculcated  by  religion.  Second,  the  natural  impulses  of 
human  sympathy.  Third,  the  defensive  foresight  of  citizens  who 
would  protect  the  future  of  the  state.  In  many  child  welfare 
movements  these  are  so  united  that  it  often  is  a  question  which 
predominates. 

Whatever  the  ultimate  stimuli  or  the  controlling  motive, 
work  of  all  kinds  in  behalf  of  depressed  and  needy  children  has 
enlarged  and  extended  very  rapidly  in  recent  years.  Not  only  are 
there  many  new  kinds  of  organizations  and  new  methods  of  work, 
but  new  establishments  in  many  new  locations.  So  marked  is  the 
present  interest  in  and  extension  of  child  welfare  work  that  this 
has  been  called  the  century  of  the  child. 

Most  present  tendencies  and  accepted  methods  are  extremely 
creditable.  For  instance,  society  now  demands  of  all  child  welfare 
agencies  a  high  quality  of  service,  enforced  by  proper  and  authori- 
tative inspection  and  supervision.  Even  twenty  years  ago  there 
were  few  standards  set  in  child  welfare  work.  Each  agency  or 
institution  was  a  law  unto  itself.  Today,  even  though  improve- 
ment of  quality  is  mainly  by  influence  rather  than  enactment, 
better  standards  are  being  established,  and  institutions  are  graded 
according  to  excellence  and  efficiency  of  service.  Our  fathers  saw 
needs  and  supplied  them  generously,  but  in  the  simplest  ways. 
This  generation  not  only  sees  but  analyzes  the  needs,  and  endeavors 
to  fit  the  best  possible  remedy  to  individual  and  social  ills.  The 
work  of  the  past  was  almost  wholly  remedial;  that  of  the  present 
is  both  remedial  and  preventive,  with  the  emphasis  on  the  latter. 

It  is  now  generally  accepted  among  all  classes  of  social 
workers  that  the  family  home  is  the  normal  institution  for  the  rear- 
ing of  children.  In  it  they  are  healthiest  and  happiest,  receive  the 
best  training,  and  develop  the  highest  types  of  character.  It  is  also 
acknowledged  that  at  best  the  orphanage  is  a  man-made  substitute, 
born  of  love  and  sympathy  because  of  sad  necessity.  In  its  rela- 
tions the  orphanage  exists  because  of  the  broken  home,  is  often 
originated  by  the  church,  receives  many  of  its  wards  by  action  of 
the  courts,  is  intimately  connected  with  the  schools,  mainly  sup- 
ported by  society  at  large,  and  is  recognized  and  often  financially 
aided  by  the  state. 

So  the  orphanage  and  similar  institutions  are  like  the  crutch 

15 


CHILD   WELFARE    WORK    IN    CALIFORNIA 

to  the  cripple — unnatural  and  additional,  and  only  to  be  used  when 
required  by  serious  ills  in  the  social  system.  The  establishment  of 
many  such  institutions  is  a  great  credit  to  humanity  and  a  proof 
of  generosity,  but  at  the  same  time  they  stand  as  sad  tokens  of  the 
ills  that  afflict  people  even  under  the  greatest  religious  light  and 
highest  development  of  modern  civilization. 

These  institutions  for  homeless  children  have  multiplied  in 
California  to  an  extent  greater  than  in  any  other  state  in  the  Union 
of  equal  population.  They  have  received  especial  official  recogni- 
tion and  very  large  appropriations  from  the  state  treasury  and  the 
county  treasuries,  as  well  as  generous  support  from  the  big- 
hearted  people  of  the  Golden  State.  In  fact,  California  for  years 
has  been  noted  for  its  orphan  asylums  and  other  like  institutions, 
and  the  large  amounts  annually  expended  upon  its  dependent 
children.  This  may  be  clearly  seen  by  the  study  of  a  few  figures 
drawn  from  the  United  States  Census  reports  on  Benevolent  In- 
stitutions for  1904  and  19 10,  which  give  statistics  from  all  of  the 
states  on  orphanages  and  children's  homes. 

The  table  below  includes  all  of  the  northern  and  Pacific  coast 
states  whose  population  was  in  1910  between  one  million  and  three 
millions.  Of  these  1 1  states,  California  ranks  fourth  in  population, 
but  easily  first  in  number  of  children  in  institutional  care  and  in 
ratio  of  inmates  to  each  100,000  of  population.  A  comparison  of 
the  columns  for  1904  with  those  for  1910  indicates  that  California, 
while  largely  increasing  the  actual  numbers  in  institutional  care, 
has  actually  lowered  the  ratio  per  100,000  of  population.  This 
has  not  been  true  of  all  the  states  in  the  table.  Seven  have  in- 
creased the  ratio,  and  it  is  diminished  in  only  four  out  of  the 
1 1 ;  while  the  reported  numbers  in  institutional  care  have  risen 
in  the  six  years  from  18,669  to  22,302. 

The  northern  states  whose  population  by  the  census  of  1910 
exceeds  three  millions,  and  their  ratio  on  the  above  basis  are: 
New  York,  331 .8;  Ohio,  177.8;  Pennsylvania,  148.0;  Massachusetts, 
120.8;  Illinois,  99.2;  and  Missouri,  86.9. 

New  York  is  therefore  the  only  northern  state  of  over  1,000,- 
000  population  whose  institutional  dependent  children  equal  in 
ratio  to  population  those  of  California,  and  all  others  fall  far 
below.    As  will  be  noted,  the  average  ratio  for  the  1 1  states  in  the 

16 


AN    EXPLANATORY    FOREWORD 

table  is  now  100.5,  or  ^  little  over  two-fifths  of  the  number  of  in- 
mates of  child-caring  institutions  found  in  those  of  California. 
The  average  ratio  for  the  other  10  states,  omitting  California,  is 
only  84.2.  While  the  figures  for  the  states  with  large  population 
are  suggestive,  the  matter  is  best  considered  with  reference  to  the 
1 1  states  in  the  table,  as  affording  the  most  just  and  striking  com- 
parison. 

TABLE  E.— RATIO  TO  POPULATION  OF  CHILDREN  IN  ORPHANAGES  AND 

HOMES 
Northern  and  western  states  having  in  igio  a  population  between  one  and  three  millions* 


Year 

1904 

Population 

Year 

1910 

Num- 
ber 

States 

Inmates 

Inmates 

Inmates 

per  100,000 

Inmates 

per  100,000 

Dec.  31 

inhabit- 
ants 

. 

Dec.  31 

inhabit- 
ants 

I 

California      .      .      .              4,630 

290.8 

2,377,549 

5,620 

236.4 

2 

Connecticut 

I.8S4 

188.7 

1,114,756 

1,950 

174.9 

3 

New  Jersey 

2,598 

124.6 

2,537,167 

3.36s 

132.6 

4 

Indiana    . 

2,934 

no. I 

2,700,876 

2,600 

96.3 

5 

Minnesota 

1,220 

62.4 

2,075,708 

1,569 

75.6 

6 

Iowa  . 

1,162 

48.9 

2,224,771 

1,667 

74-9 

7 

Wisconsin 

1.283 

57. 2 

2,333,860 

1,603 

68.7 

8 

Michigan 

1,669 

65.6 

2,810,173 

1.868 

66.5 

9 

Washington 

359 

60.7 

1,141,990 

639 

56.0 

10 

Nebraska 

393 

36.8 

1,192,214 

646 

54-2 

II 

Kansas    . 

S67 

38.1 

1,690,949 

775 

45.8 

To 

tal 18,669 

96.1 

22,200,013 

22,302 

100.5 

»  Estimated  aggregate  population  in  1904  was  19,417,291. 

The  original  study  covered  a  period  of  about  twelve  months 
and  was  completed  in  December,  191 1.  By  correspondence  and 
the  aid  of  interested  social  workers  within  the  state,  many  of  the 
statistics  of  finance  and  children  have  been  brought  down  to  the 
years  1913  and  191 4.  The  study  reached  every  important  organi- 
zation in  the  state,  and  outlines  the  facilities  and  conditions  relat- 
ing to  the  care  of  dependent  and  delinquent  children  as  they  exist 
at  the  present  time.  The  following  chapters  are  a  resume  of  that 
survey. 


17 


CHAPTER   11 
DEFINITIONS,   LISTS,   AND   STATISTICAL  TABLES 

THE  principal  ideas  which  were  the  groundwork  of  the  study, 
and  the  use  made  of  them  in  compiling  this  manual  from 
the  material  gathered,  should  be  early  and  clearly  in  the 
mind  of  the  reader.  Attention  therefore  is  called  to  a  number  of 
matters  intimately  related  to  both  the  descriptive  text  and  the 
statistical  tables  found  in  later  chapters. 

A  number  of  important  definitions  are  given,  the  child- 
helping  institutions  of  California  are  listed  by  classes,  and  a  set  of 
related  statistical  tables  are  carefully  described.  The  terms  and 
methods  here  noted  are  not  intended  to  be  taken  as  final,  but  in 
matters  where  there  are  differences  of  opinion  or  practice  among 
social  workers  as  tentative,  and  applying  merely  to  this  study  and 
compendium. 

Definitions  of  Terms 

The  term  "dependents"  is  used  for  all  needy  and  neglected 
children,  whether  orphaned  or  with  living  parents,  who  require 
assistance  from  those  outside  their  immediate  families  or  from 
public  funds. 

Those  "delinquent"  are  the  wilful  and  wayward,  requiring 
some  degree  of  custodial  care,  and  implying  generally  action  by 
some  juvenile  court. 

Those  "defective"  are  the  mentally  deficient  and  epileptic. 

For  the  purposes  of  this  study  the  term  "agency"  is  used  to 
indicate  a  child-caring  organization  whose  main  function  is  to 
provide  for  needy  and  dependent  children  by  placing  them  in 
family  homes,  orphanages,  hospitals,  or  reformatories.  Some  of 
these  agencies  have  small  institutions,  usually  called  receiving 
homes,  in  which  children  are  given  temporary  care  pending  a 
more  permanent  placement. 

Those  child-caring  organizations  whose  principal  function  is 


DEFINITIONS,    LISTS,    AND    STATISTICAL   TABLES 

to  provide  direct  and  more  or  less  permanent  board  and  care,  and 
which  usually  possess  considerable  plant  and  equipment  for  the 
purpose,  are  classified  as  "institutions."  

The  "cottage"  type  of  institutions  is  indicated  by  limited 
groups  of  children  in  small  buildings,  and  care  and  spirit  in  imita- 
tion of  ordinary  family  life.  Where  each  cottage  is  a  complete 
domestic  unit,  v/ith  its  own  kitchen  and  dining  room,  the  number 
of  children  should  not  exceed  30  in  any  one  cottage.  Where  the 
cooking  is  done  in  a  general  kitchen  and  the  meals  served  either 
in  cottage  dining  rooms  or  in  a  general  dining  room,  the  number  of 
children  should  not  exceed  50  in  any  one  cottage. 

The  "congregate"  type  of  institutions  is  indicated  generally 
by  large  buildings  and  care  of  children  en  masse,  with  little  ap- 
proach to  family  life.  Usually  the  minimum  number  of  children 
in  a  congregate  institution  or  building  is  50;  but  where  the  physical 
equipment,  spirit  and  methods  are  adapted  to  mass  care,  and  the 
treatment  of  the  children  is  collective  rather  than  individual,  these 
conditions  rather  than  numbers  would  call  for  the  congregate 
classification. 

The  "plant"  of  an  institution  includes  the  grounds,  build- 
ings, furnishings,  and  equipment  directly  connected  with  the  care 
of  children;  all  other  property,  including  lands,  buildings,  bonds, 
mortgages,  and  invested  funds  of  all  kinds,  is  counted  "endow- 
ment" whether  or  not  it  has  been  definitely  set  aside  as  such  by 
the  institution.  In  the  tables  the  column  headed  "endowment" 
includes  the  aggregate  of  all  institutional  property  other  than  its 
"plant." 

The  "value  of  property"  is  generally  partly  estimated .  Usually 
it  is  made  by  the  oificers  of  the  various  institutions.  Sometimes 
it  is  the  estimate  of  the  visitor,  after  careful  consultations. 

The  "capacity"  of  an  institution  is  the  number  of  children 
for  whom  sleeping  accommodations  are  provided. 

The  term  "regular  employe"  or  worker  usually  means  one 
paid  a  salary  for  devoting  all  of  his  or  her  time  to  the  service;  but 
may  include,  as  in  Catholic  institutions,  those  who  are  regularly 
employed  but  have  no  stated  financial  compensation. 
- —  Child-placing  in  families,  or  "placing-out,"  is  thus  defined  in 
section  300  of  the  New  York  statutes:   "The  placing  of  a  destitute 

19 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

child  in  a  family,  other  than  that  of  a  relative  within  the  second 
degree,  for  the  purpose  of  providing  a  home  for  such  child." 

To  place  with  "  kin"  is  to  place  with  relatives  of  the  first  and 
second  degrees — parents,  grandparents,  brothers,  or  sisters. 
-    "     No  children  are  counted  "  placed, "  either  on  pay  board  or  in 
free  homes,  who  remain  in  these  homes  a  shorter  period  than  a  week. 

An  institution  is  said  to  do  "placing-out  work"  when  it 
selects  homes,  or  secures  positions  including  homes,  for  any  num- 
ber of  its  minor  wards,  and  by  authority  of  its  guardianship  offi- 
cially arranges  for  their  location  in  such  homes,  either  as  paying 
boarders,  free  inmates,  or  paid  workers. 

The  "public  funds"  are  those  derived  from  taxation,  whether 
administered  by  state,  county,  or  municipal  authorities.  The 
"private  funds"  are  those  derived  from  sources  other  than  taxa- 
tion and  include  receipts  from  special  gifts,  income  from  endow- 
ments, general  donations,  entertainments,  tag  days,  and  other 
miscellaneous  money  gathering  methods. 

Schedule  and  List  of  Institutions 

In  making  the  study  the  writer  personally  visited  each  insti- 
tution and  the  court  house  of  nearly  every  county.  A  schedule 
was  used  in  order  to  obtain  uniform  statistics,  and  additional  facts 
and  impressions  were  recorded  in  story  form.  A  reprint  of  the 
schedule  is  presented  on  the  following  page. 

For  convenience  of  study  and  tabulation  the  various  agencies 
and  institutions  are  grouped  according  to  management,  function, 
and  other  special  relations.  The  divisions  made  are  not  always 
perfectly  satisfactory,  but  can  not  be  much  improved  without 
greatly  increasing  the  number  of  tables,  which  is  inadvisable. 

The  classified  list  on  page  22  shows  the  number  and  kinds  of 
child-helping  institutions  in  California.  Those  wholly  or  mainly 
supported  by  public  funds,  and  under  the  direct  management  of 
officials  appointed  by  state  or  county  authority,  are  counted  public 
institutions.  Those  in  which  the  property  is  held,  the  policy  con- 
trolled, and  the  funds  administered  by  privately  created  boards  of 
management  and  their  employes,  are  listed  as  private  institutions. 

The  list  conforms  to  the  institutions  named  in  the  tables. 
A  number  of  others  will  be  mentioned  in  the  text.     For  instance, 

20 


,g.  RUSSELL  SAGE  FOUNDATION:  ^o. 

Iiingjj Department  OF  Child-Helping.  Date.. 

BRIEF  OF  INFORMATION.  Agent. 


.191. 


;  of  Institution Location 

Intendent Address 

'  1  founded Relig.  Affiliation Purpose    . .' 

ral 

PROPERTY  MATTERS. 

Suilding  and  Grounds 

<ands  and   Cultivation - 

/■aluatlon,  Etc . .  -.- 

endowment 

lome  accommodates  without  crowding ;  Single  beds Double  beds. 

■eneral » 

Income  and  Expenses  for  Year  Ending 191. . 

CURRENT    INCOME.  CURRENT    DISBURSEMENTS. 

om  Endowment $ x  Salary  of  Superintendent  or  Matron $.... 

ineral  Donations $ a  Other  Salaries  or  Wages § 

iblic  Appropriations § 3  Home  Supplies,  Etc $ . . . . 

)ard  of  Children $ 4  Repairs  and  Improvements ?.... 

ecial  Gifts § 5  Travel  and  Placement  Expenses ?.... 

iscellaneous 3 6  Other  Items $.... 


ar's  Total  Receipts $ 7    Year's  Total  Expenses ?... 

Record  of  Children  for  Year  Ending 191. . 

RECEPTION    AND   CLASSIFICATION.  DISPQSITION    AND    LOCATION. 

ired  for  since  organization •. I     New  Wards  Placed  in  Family  Homes 

a  hand  beginning  of  year a     Wards  of  Previous  Years  Replaced 

ew  Children  Received .•  3    Returned  to  Parents 

ards  of  Previous  Years  Returned 4    Other  Disposition 

iotal  Cared  for  during  year.....' 5    On  hand  date  of  Report.. 

'   'hat  ages  taken  into  care 6    Total  as  in  Reception  No.  5 

■   o.  babes  under  one  year  7    Now  available  for  placement 

I   o.  older  than  one  year 8    No.  legally  adopted  during  year 

I   v»rage  No.  in  Home  during  year 9    Placed  under  Con.  or  Indenture 

I   veiage  stay  in  Institution 10    Placed  on  wages 

lasses  Received — Boys 11    Total  under  supervision  in  family  homes 

Girls la     Age  at  which  contracts  close 

Dependents 13    What  supervision  given 

Delinquents. '. .  


l)ges  and  improvements  desired: 


Learks. 


)rt  made 191 . .  Agent. 

.  Facsimile  of  Schedule  Used  in  Study 
21 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

besides  the  lo  detention  homes  here  listed,  there  are  eight  more 
established  for  which  no  detailed  statistics  could  be  obtained. 
There  are  also  auxiliary  organizations  and  institutions  definitely 
related  to  the  child-caring  work,  but  not  taking  children  into  their 
direct  care  or  control.  Such  will  have  mention  in  the  text  but 
will  not  appear  in  any  of  the  tables. 

LIST  OF  AGENCIES  AND  INSTITUTIONS  FOR  WHICH  STATISTICS  HAVE  BEEN 

TABULATED 
Under  Public  Management 
State 

Institution  for  feeble-minded i 

Institutions  for  delinquents 3 

County 

Juvenile  detention  homes 22. 

Total  under  public  management 14 

Under  Private  Management 

Child-placing  agencies 7 

Institutions  for  delinquents 4 

Institutions  for  dependents 

Nonsectarian  orphanages  and  homes 3° 

General  church  orphanages  and  homes 18 

Catholic  orphanages  and  homes 21 

Combined  care  of  adults  and  children _6 

Total  under  private  management 86 

Grand  total  public  and  private 100 

Description  of  Tables 

For  14  public  institutions  and  86  institutions  and  agencies 
under  private  management,  all  of  which  are  doing  direct  work  for 
children,  statistics  have  been  carefully  tabulated.  For  eight  de- 
tention homes,  three  new  child-caring  institutions,  two  new  child- 
placing  agencies,  and  the  40  agencies  and  institutions  classed  as 
auxiliary  and  whose  care  of  children  is  brief  or  whose  relation  to 
them  is  merely  incidental,  no  formal  tables  are  provided. 

The  statistics  of  the  100  agencies  and  institutions  dealt  with 
in  the  tables  are  arranged  systematically,  with  a  general  table  for 
each  group  as  given  in  the  foregoing  classified  list,  save  that  the 
public  and  private  institutions  for  delinquents  are  combined  in  a 
single  table  which  also  includes  the  state  institution  for  defectives. 
Each  general  table  contains  a  set  of  three  related  sections.  The 
information  for  each  institution  or  group  will  best  be  obtained  by 
the  successive  study  of  each  section  from  the  first  to  the  third. 
The  character  of  these  sections  (each  a  table  complete  in  itself)  and 
the  material  contained  in  them  are  as  follows: 

22 


DEFINITIONS,    LISTS,    AND    STATISTICAL   TABLES 

1.  Section  A.  General  and  Financial.  This  table  is  in- 
tended to  give  an  outline  of  the  institution's  general  character  and 
its  investments  in  plant  and  endowment.  It  gives  the  location 
and  name,  year  of  founding,  type  of  housing,  date  of  the  report 
quoted,  capacity,  cost  of  plant  per  bed,  value  of  plant,  amount  of 
endowment,  and  total  value  of  property. 

2.  Section  B.  Comparative  Current  Statistics.  This 
table  takes  up  the  annual  expense  and  shows  the  total  for  mainte- 
nance and  the  amount  paid  for  salaries,  with  per  capitas  for  total 
maintenance  and  for  salaries  based  upon  the  average  number  of 
children  in  care.  Then  follows  the  amount  of  public  funds  re- 
ceived during  the  year,  and  its  per  capita  and  per  cent  of  the  annual 
maintenance  expense.  Finally,  the  number  of  regular  employes, 
the  average  number  of  children  in  care,  and  the  average  number  of 
children  per  employe  are  given. 

In  the  table  for  the  agencies  this  section  is  modified  and  gives 
instead  of  per  capitas  the  per  cent  of  expense  devoted  to  salaries, 
travel  and  placement,  and  general  matters. 

3.  Section  C.  Statistics  of  Children.  Here  are  found 
the  vital  statistics  of  the  institution.  The  table  records  the  chil- 
dren in  the  institution  at  the  beginning  of  the  year  covered  by  the 
report,  the  children  received  during  the  year,  and  the  total  number 
in  care  during  the  year.  To  match  these  entrance  statistics  are 
those  showing  what  disposition  was  made  of  the  recorded  total,  in 
columns  showing  the  numbers  placed  in  family  homes,  returned 
to  kin  or  friends,  died,  disposed  of  otherwise,  and  in  the  institution 
at  the  close  of  the  year.  A  column  is  also  given  to  the  children 
outside  the  institution  but  still  under  its  supervision  at  the  close 
of  the  year. 

In  the  table  for  the  agencies  this  section  also  is  modified 
slightly  to  better  adapt  it  to  the  special  work  done. 

A  summary  is  provided  for  the  79  private  institutions,  and 
also  a  general  summary  for  the  entire  100  agencies  and  institutions, 
each  in  three  sections  to  conform  to  the  above  plan,  bringing 
together  the  totals  of  the  several  tables  for  purposes  of  comparison 
and  a  general  total. 

There  are  also  special  tables  to  illustrate  the  distribution  of 
public  funds  to  private  institutions,  and  detailing  the  amounts 

23 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

appropriated  by  the  state  and  the  various  counties  for  the  care 
of  dependent  children. 

Each  table  indicated  above  immediately  follows  the  chapter 
to  which  it  relates.  It  will  be  noted  that  the  fiscal  year  covered  is 
not  always  the  same  for  different  institutions.  The  latest  statistics 
available  are  used  in  each  case.  The  totals  for  this  reason  can  not 
be  considered  as  exact  for  any  definite  date,  but  only  approximate. 
Nevertheless  they  afford  a  reasonably  accurate  resume  of  recent 
amounts,  numbers,  and  conditions. 

The  fact  that  California  is  one  of  the  newer  states  and  that 
its  topography,  varied  times  and  manner  of  settlement,  present 
population,  and  special  climatic  conditions  all  enter  into  its  prob- 
lems of  dependency  and  delinquency,  have  led  to  the  preparation 
of  a  chapter  giving  a  general  description  of  the  state.  Another  is 
devoted  to  the  development  of  its  child-caring  institutions.  These 
precede  those  directly  relating  to  existing  agencies  and  institutions, 
and  may  be  considered  a  sort  of  background  for  the  details  found 
in  the  descriptive  text  and  the  statistical  tables. 


24 


CHAPTER   III 
OUTLINING   THE   FIELD 

TO  those  who  have  lived  in  California  any  description  of  its 
peculiarities  is  superfluous.  Those  who  have  spent  any 
considerable  time  within  the  state  will  need  little  to  enable 
them  to  recall  much  of  its  oft-repeated  story.  But  any  not  thus 
favored  will  be  better  prepared  for  details  after  glancing  over  a 
few  outline  facts.  Some  statistical,  historical,  and  sociological 
matters,  therefore,  properly  introduce  this  study. 

California  was  discovered  by  the  Spanish  explorer,  Cabrillo, 
in  1542.  No  permanent  settlements  or  colonies  were  attempted 
until  1709.  California  was  a  regular  Spanish  colony  from  1769  to 
1822,  when  the  territory  became  a  part  of  Mexico.  In  1846,  as 
one  result  of  the  Mexican  war,  California  became  a  part  of  the 
United  States.  Admission  to  the  Union,  as  the  eighteenth  state, 
followed  in  1850. 

In  area  and  resources  California  is  a  great  state.  It  stretches 
approximately  250  miles  east  and  west,  and  800  miles  north  and 
south,  with  a  total  area  of  nearly  160,000  square  miles,  exceeded 
only  by  that  of  Texas.  There  are  a  full  1,000  miles  of  coast  line, 
all  tempered  by  the  warm  Japan  Current.  Its  climate  varies  from 
mild-temperate  in  the  mountains  to  semi-torrid  in  the  interior 
valleys,  with  delightful  moderation  on  most  of  its  thousand  miles 
of  sea  coast. 

Its  resources  are  even  more  varied.  Rich  minerals  line  the 
mountains.  Great  forests  furnish  fine  timber.  Thousands  of 
cattle  feed  upon  its  green  hills.  Immense  crops  grow  upon  its 
alluvial  plains.  Its  orchards  are  fruit-bearing  wonders.  There  is 
untold  water  power  in  its  multitude  of  streams.  It  is  "a  land  of 
mighty  rivers,  flowing  over  sands  of  gold." 

When  first  discovered  there  was  a  numerous  population  con- 
sisting of  many  great  and  distinct  tribes  of  Indians.  These  were 
largely  destroyed  or  absorbed  by  the  Spanish  and  Mexican  settlers. 

25 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

The  remainder  rapidly  vanished  when  the  land  was  overrun  by  the 
gold  seekers  and  their  congeners. 

Some  descendants  of  the  Indians  and  of  the  early  Spanish 
and  Mexican  settlers  remain.  They  are  usually  of  mixed  blood; 
and  for  lack  of  energy  and  commercial  instinct  they  have  been 
outstripped  in  the  race  by  the  more  vigorous  later  comers.  The 
old  Spanish  missions,  once  thronged  by  teachable  thousands,  are 
but  tourists'  shrines  in  this  utilitarian  age.  The  descendants  of 
the  ancient  Californians,  outnumbered  and  outclassed,  are  the 
"hewers  of  wood  and  drawers  of  water"  for  the  virile  Anglo- 
Saxons  and  others. 

The  present  population  of  California  exceeds  two  millions 
(2,377,549  by  the  census  of  1910).  The  people  may  be  pretty 
accurately  described  by  stating  that  they  are  derived  "from  every 
nation  under  heaven."  One  is  reminded  of  the  expression  "the 
melting  pot  of  the  nations." 

The  modern  development  of  the  state  dates  from  the  dis- 
covery of  gold  in  1848.  From  the  "Argonauts  of  '49"  and  the 
diversified  immigrants  who  followed  them,  to  the  present  time, 
California  has  always  had  a  great  people,  although  small  in  numbers 
as  compared  to  its  immense  area  and  possibilities.  The  real 
California  includes  multitudes  of  cultured,  high-minded,  and  pro- 
gressive citizens,  and  to  them  the  state  is  not  on  the  edge,  but  "the 
middle  of  the  world." 

The  general  development  of  the  state  has  progressed  wonder- 
fully, especially  within  the  last  two  decades.  Modern  mining 
methods  are  exploiting  new  mineral  wealth.  The  great  forests  are 
yielding  the  products  of  systematic  lumbering.  The  rivers  have 
been  set  to  work,  irrigating  immensely  fertile  plains.  The  moun- 
tain streams  have  been  utilized  to  produce  untold  water  power, 
which  is  transformed  into  electricity  and  transmitted  by  wire  to 
the  cities.  Commercial  enterprise  is  rapidly  extending.  Many 
great  factories  are  already  at  work  in  the  populous  districts.  The 
immense  business  and  mileage  of  its  railroads  are  increasing  every 
year.  Its  three  great  harbors,  and  especially  that  at  San  Fran- 
cisco, are  the  natural  Pacific  gateways  of  round-the-world  com- 
merce. 

Life  in  California  is  modified  by  its  remarkable  physical  con- 

26 


OUTLINING   THE    FIELD 

trasts.  Perhaps  nowhere  else  can  be  found  extremes  so  numerous 
within  such  narrow  limits.  People  respond  to  these  exterior  con- 
ditions; therefore  they  are  important. 

Here  snow-clad  mountains  frown  down  upon  frostless  valleys 
clad  in  vines  and  orange  groves.  The  largest  trees  in  existence, 
and  said  to  be  the  oldest  living  things  on  the  face  of  the  earth,  look 
out  over  a  great  plain  where  scientific  irrigation  is  producing  the 
newest  results  in  plant  culture.  Old  missions,  half  in  ruins,  are 
crowded  by  smart  modern  bungalows.  The  desert  is  on  one  side 
of  an  oiled  automobile  road,  and  the  rich  growth  of  intensive  farm- 
ing on  the  other.  Vast  alluvial  plains,  fertile  as  the  valley  of  the 
Nile,  lie  just  inside  a  mountain  barrier,  against  which  beat  the 
waves  of  earth's  greatest  ocean.  A  thousand  miles  of  rocky  coast 
line  are  broken  but  a  few  times  to  admit  entrance,  but  these 
harbors  are  among  the  finest  on  the  globe. 

The  variety  and  contrasts  among  the  people  of  California  are 
equally  striking.  The  descendants  of  the  Indians  and  the  old 
Spanish  conquerors  are  seen  here  and  there  among  the  more 
numerous  modern  citizens.  San  Francisco  is  but  a  trifle  less  cos- 
mopolitan than  New  York.  Variety  among  the  people  of  all 
California  communities  is  almost  universal.  The  orient  and  the 
Occident,  the  American  and  the  European  and  all  grades  of 
culture  and  ignorance,  wealth  and  poverty,  acquisitiveness  and 
improvidence,  the  poetry  of  life  and  its  most  sordid  prose,  meet 
and  mingle  freely  here,  although  not  always  without  friction. 

In  California  private  generosity  and  public  graft  have  no 
known  limits — or  had  none  until  the  last  few  years.  Millions  are 
spent  to  attract  citizens  and  capital  from  afar,  and  temples  are 
erected  in  almost  every  city  as  shrines  for  "  Native  Sons  and  Daugh- 
ters." Here  Jewish  and  Chinese  merchants  compete  for  trade; 
keen  Americans  deal  in  real  estate;  Kanakas  and  Japanese  wait  on 
tables;  coolies  toil  in  market  gardens;  Hindoos,  Italians,  Greeks, 
Portugese,  Russian  Jews,  Slavs,  and  Cholos,  as  the  Mexican  labor- 
ers are  called,  are  everywhere  in  evidence  as  parts  of  the  extremely 
varied  population. 

The  presence  of  adherents  to  practically  all  religions,  as  well 
as  people  of  many  races,  complicates  all  social  work,  including 
that  related  to  child-care.     The  Presbyterian  church  maintains  a 

27 


CHILD    WELFARE   WORK    IN    CALIFORNIA 

Chinese  mission  home  in  Los  Angeles.  The  Methodist  Episcopal 
church  has  an  oriental  home  for  Chinese  dependents,  and  one  for 
Japanese  and  Korean  children  in  San  Francisco,  and  a  home  and 
school  for  Spanish  and  Mexican  girls  in  Los  Angeles.  The  Roman 
Catholic  church  has  many  institutions  for  children,  in  some  of 
which  are  separate  departments  for  different  races.  The  Jews 
are  also  well  represented  by  two  strong  orphanages.  While  there 
are  nearly  three  score  child-caring  agencies  and  institutions  of 
nonsectarian  character,  there  are  over  two  score  under  the  control 
of  churches.  The  "isms"  and  "ologies"  mingle  in  California  as 
in  few  other  places  on  earth. 

Two  things  should  be  especially  emphasized  in  preparing  to 
study  the  state  in  reference  to  child  welfare  work.  First,  the 
generally  mild  climate  and  productiveness  of  California  have  made 
it  the  goal  of  the  diseased  and  other  unfortunates,  many  of  whom 
have  here  expected  to  escape  the  need  of  toil  that  elsewhere  is 
required  to  win  subsistence.  Some  have  even  traduced  the  name 
of  the  state  by  calling  it  "  a  lazy  man's  paradise."  Naturally  from 
such  citizens  have  come  many  children  requiring  public  support. 
Second,  the  same  elements  also  attracted  the  very  opposite  class 
of  people — the  hard-headed,  ambitious,  progressive,  wealth-pro- 
ducing citizens — largely  from  the  Atlantic  coast  at  first,  because 
of  the  difficulties  in  crossing  the  continent.  These  eastern  people 
were  reared  where  orphanages  were  already  established,  and  the 
institutional  care  of  dependents  was  accepted  without  question  as 
the  proper  method,  in  facing  similar  needs  in  their  new  home 
region,  they  naturally  began  to  rear  congregate  institutions.  Into 
these,  in  increasing  numbers  as  the  years  went  by,  passed  a  never- 
ending  army  of  children,  recruited  from  the  wilfully  indolent,  the 
hopelessly  indigent,  and  the  wofully  unfortunate. 

For  many  years  California  was  in  the  highest  sense  progres- 
sive. An  overpowering  influx  of  excellent  new  blood  made  the 
first  few  decades  of  the  state's  modern  history  remarkable.  Totter- 
ing gray-haired  men,  the  survivors  of  that  time,  still  tell  you, 
"There  were  giants  in  those  days!" 

Later  came  a  period  of  conservatism,  but  within  the  past 
five  years  progressiveness  has  come  back  with  a  rush.  The  legis- 
lative sessions  of  1911  and  191 3  were  memorable.     Many  excel- 

28 


OUTLINING   THE    FIELD 


lent  new  laws  were  enacted.    Among  those  enacted  in  1911  were\ 
18  directly  relating  to  social  welfare  matters,  and  a  number  of 
others  were  devoted  to  the  correction  of  serious  civic  evils.     The 
record  of  the  legislature  of  191 3  was  almost  equally  important. 

Similar  indications  are  easily  seen  in  all  social  welfare  and 
civic  affairs.  Public  playgrounds  in  connection  with  public  schools, 
careful  administration  of  child  labor  laws,  advanced  methods  of 
inspection,  earnest  discussions  of  temperance  and  the  social  evil, 
and  efforts  to  come  to  the  front  in  all  worthy  charities  and  reforms, 
characterize  California  today.  The  Golden  State  may  now  be 
classed  as  one  of  the  most  progressive  states  in  the  Union. 


29 


CHAPTER   IV 

DEVELOPMENT  OF  INSTITUTIONS  AND  CHILD 
WELFARE  WORK 

INSTITUTIONS  for  the  care  and  training  of  homeless  and  de- 
pendent children  were  early  started  by  sympathetic  and 
humane  people,  led  by  the  Christian  churches.  The  work 
began  soon  after  the  "gold  rush"  in  1849.  The  San  Francisco 
Protestant  Orphan  Asylum  was  established  in  1851,  and  the 
Roman  Catholic  Orphan  Asylum,  of  the  same  city,  in  1852.  Many 
others,  both  Catholic  and  non-Catholic,  were  organized  within  the 
next  twenty  years.  Children's  homes,  slightly  modified  orphan- 
ages, became  a  Protestant  supplement  to  the  regular  orphanage 
system,  and  a  similar  development  produced  among  the  Catholics 
a  mixture  of  home  and  parochial  school. 

Later  came  the  beginnings  of  the  home-finding  work,  in 
1890,  when  the  Children's  Home  Society  of  California  was  organ- 
ized. Still  later  have  come  allied  institutions,  like  the  rescue 
homes  of  the  Salvation  Army,  the  day  nurseries  and  kindergar- 
tens, societies  for  the  prevention  of  cruelty,  the  juvenile  courts, 
and  the  children's  hospitals. 

All  of  these  are  so  related  at  the  present  time  that  it  is  almost 
impossible  to  consider  the  work  of  any  of  them  separately.  The 
child  born  in  the  rescue  home  is  often  placed  in  an  orphanage,  or 
assigned  to  a  placing-out  agency  for  adoption.  Many  day  nur- 
sery children  become  homeless,  and  like  the  foundlings  must  go 
to  an  institution  giving  permanent  care;  or  because  of  ailments 
detected  by  the  charity  workers  are  admitted  to  the  children's 
hospitals.  The  societies  for  the  prevention  of  cruelty  and  the 
juvenile  courts  have  their  special  duties  in  the  legal  action  which  is 
often  necessary  to  compel  proper  arrangements. 

From  early  times  the  state  has  been  very  free  and  paternal  in 
approving  and  financing  work  for  dependent,  delinquent,  and  defect- 
ive children.    For  the  second,  excellent  state  institutions  have  been 

30 


INSTITUTIONS    AND   CHILD    WELFARE    WORK 

provided,  and  their  work  is  supplemented  by  several  private  train- 
ing schools  and  homes.  A  chapter  will  be  given  to  these  institu- 
tions for  delinquents,  and  the  one  for  the  feeble-minded  and  epi- 
leptic. 

Formerly  state  help  for  dependent  children  was  given  almost 
entirely  through  subsidies  to  private  institutions.  For  the  sup- 
port of  each  full  orphan,  the  institutions  have  drawn  $ioo  per 
annum;  for  half-orphans  and  abandoned  children,  $75;  for  found- 
lings, I12.50  per  month  until  eighteen  months  old.  Of  late  years 
the  amounts  paid  from  the  state  treasury  on  this  basis  have  dimin- 
ished, and  the  amounts  paid  from  the  county  treasuries  for  the 
support  of  dependents  have  increased.  Both  the  state  and  the 
various  counties  have  greatly  increased  the  amounts  paid  to  chil- 
dren in  the  care  of  county  supervisors  who  are  largely  located  in 
private  homes.  As  these  were  mainly  the  children  of  widowed  or 
abandoned  mothers,  the  so-called  mothers'  pension  law,  which  as 
elsewhere  stated  is  but  a  paragraph  added  to  an  old  statute,  only 
enlarged  the  scope  and  more  fully  defined  such  action,  opening  the 
way  for  great  increase  in  the  public  funds  so  appropriated. 

Stuart  A.  Queen,  secretary  of  the  state  board  of  charities 
and  corrections,  in  a  communication  dated  August  20,  191 5,  gave 
the  following  interesting  information,  which  demonstrates  and 
emphasizes  the  increased  "outdoor  relief"  under  this  191 3  amend- 
ment to  the  law  granting  state  aid  to  children. 

In  answer  to  your  inquiry  as  to  the  amount  paid  out  by  San  Fran- 
cisco County  on  mothers'  pensions  during  the  period  of  one  year,  I  can 
give  you  the  following  figures  for  the  fiscal  year  July  i,  19 14,  to  July  i, 
191 5:  a  total  of  $85,363.90  was  disbursed  through  the  Widows'  Pension 
Bureau  of  San  Francisco  County.  Of  this  amount  the  State  reimbursed 
the  County  to  the  extent  of  $55,884.81,  the  remainder  of  $29,479.09  being 
paid  out  of  county  funds. 

In  191 1  the  state  paid  ^248,599  directly  to  about  45  private 
institutions  for  the  care  of  such  dependents;  and  $180,801  to  the 
various  counties  for  the  care  of  dependents,  most  of  whom  are 
not  in  institutions,  on  bills  presented  to  the  state  by  the  county 
authorities.  The  same  year  from  their  own  treasuries  the  counties 
appropriated  ^126,179  for  the  care  of  dependent  children  in  private 
institutions,  and  ^123,451  as  aid  to  dependent  children  in  family 

3' 


CHILD   WELFARE    WORK    IN    CALIFORNIA 

homes.     The  details  as  to  the  location  of  these  appropriations, 
aggregating  $679,030,  will  be  found  in  Chapter  XV. 

Speaking  of  those  receiving  state  aid  through  the  county 
authorities,  W.  Almont  Gates,  former  secretary  of  the  state  board 
of  charities,  said: 

This  money  generally  goes  to  widows  who  are  trying  to  keep  their 
families  together.  This  should  not  be  discouraged.  The  mother,  if  of 
good  character,  is  the  best  person  to  care  for  her  children,  and  the  state 
or  county  should  contribute  all  that  is  necessary  to  enable  her  to  keep  her 
family  together,  care  for,  and  train  them.  We  should  never  permit  the 
demon  poverty  to  tear  the  child  from  the  arms  of  a  good  mother.* 

In  the  report  from  which  the  above  is  quoted,  Secretary 
Gates  also  made  an  interesting  exhibit  of  the  numbers  of  dependent 
children  in  California,  and  compared  the  aggregate  with  similar 
data  derived  from  reports  of  various  other  states  of  the  Union.  He 
said: 

The  number  of  dependent  children  in  this  state  on  September  30, 

1909,  was  approximately  as  follows: 

In  the  orphan  asylums 5.322 

In  care  of  boards  of  supervisors 2,423 

In  care  of  children's  home-finding  societies 427 

In  county  almshouses 50 

Total 8,222 

This  does  not  include  the  600  children  placed  in  free  homes,  but 
still  under  the  supervision  of  the  home-finding  societies.! 

Comparing  this  aggregate  with  the  numbers  reported  by 
six  of  the  northern  states.  Secretary  Gates  declared: 

In  comparison  with  other  states,  the  number  of  dependent  children 
in  California  is  exceedingly  great,  and  the  cost  of  their  care  correspond- 
ingly large.  .  .  .  We  are  the  least  in  population  of  any  of  these  states, 
but  we  have  more  dependent  children  than  any  two  combined, — with  the 
exception  of  New  York.     .     .     . 

We  are  putting  our  children  into  the  institutions,  while  these  other 
states  are  placing  theirs  out  in  homes.  Even  New  York  is  coming  to  the 
front  with  more  than  6,000  placed  out  in  a  single  year."  J 

*California  State  Board  of  Charities  and  Corrections.     Biennial   Report, 

1910,  p.  28. 

tibid.,  p.  33. 
JIbid.,  pp.  33-34. 

32 


Group  of  Buildings 


Farm  Cottage 


President  and  Cabinet 
California  George  Junior  Republic,  Chino.     (See  p.  45) 


Building  Erected  by  the  Boys 


Baseball  Squad  in  1914 


I  ii^hlli  (/r.ulc  I'Lipils,  Nownihcr,   11)14 
California  George  Junior  Republic,  Chino.     (See  p.  45) 


INSTITUTIONS    AND   CHILD    WELFARE    WORK 

Therefore,  it  is  now  realized  that  there  is  an  abnormal  amount 
of  child-dependency  in  California,  that  the  burden  of  expense  is 
heavier  than  is  just  and  right,  and  that  children's  institutions, 
especially  those  for  permanent  care,  have  multipHed  beyond  need 
or  reason.  These  conclusions,  reached  independently  by  direct 
study  of  statistics  by  leading  California  social  workers,  are  forti- 
fied and  emphasized  by  the  comparative  table,  drawn  from  the 
United  States  Census  statistics,  given  in  Chapter  I. 

So  clear  and  definite  are  his  statements  of  some  of  the  rea- 
sons for  present  conditions,  that  a  few  pertinent  and  suggestive 
paragraphs  from  Secretary  Gates'  report  may  well  be  quoted  here: 

There  is  no  doubt  that  the  main  reason  for  so  large  child-depen- 
dency in  this  State  is  the  ease  with  which  our  system  permits  parents  to 
escape  the  duty  of  supporting  their  children.  In  almost  no  instance  are 
the  parents  of  illegitimate  children  made  to  contribute  to  their  support. 
We  relieve  them  from  the  consequences  of  their  wrong,  without  even  an 
injunction  to  "go  and  sin  no  more." 

Other  parents  separate  for  trivial  causes,  or  one  of  them  dies,  and 
the  children  are  placed  in  an  orphan  asylum.  Possibly  the  parent  plac- 
ing them  there  agrees  to  pay  for  their  care  and  perhaps  does  so  for  a  time. 
This  parent  may  be  perfectly  able  to  pay  but  does  not  care  to,  and  there 
is  no  one  to  compel  him.  The  orphan  asylum,  in  need  of  funds,  can  not 
afford  to  keep  these  children  without  compensation,  and  the  only  other 
resource  is  to  list  them  for  State  aid.  They  can  not  be  placed  out  into 
homes,  for  this  parent  still  has  a  claim  upon  them  and  may  call  for  them 
at  any  time. 

Frequently  the  parent  wishes  to  remarry,  and  the  new  foster  parent 
does  not  like  the  "encumbrances,"  which  up  to  this  time  the  parent  has 
supported.  The  "encumbrances"  are  sent  to  the  orphan  asylum,  that 
their  support  may  be  shifted  upon  the  public  and  the  way  made  clear  for 
the  new  family,  which  will  now  be  started. 

The  full  extent  of  this  abuse  may  be  seen  from  the  records  of  the 
State  Board  of  Examiners.  Last  year  (year  ending  June  30,  1910)  claims 
for  State  aid  to  the  orphan  asylums  were  audited  for  only  637  full  orphans 
and  for  3,348  half-orphans.  The  enforcement  of  the  liability  of  the  living 
parent  would  undoubtedly  reduce  the  amount  paid  in  State  aid  nearly 
one-half.* 

As  remedies  for  these  evils,  Secretary  Gates  in  the  same  re- 
port proposed  the  enactment  of  laws  as  follows: 
*lbid.,  p.  34. 

33 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

1.  That  no  state  aid  should  be  granted  for  the  support  of  any  child, 
unless  the  juvenile  court  has  first  declared  it  a  dependent. 

2.  That  judges  should  be  empowered  in  proper  cases  to  sever  the 
rights  of  the  parent  in  the  child,  and  place  it  under  guardianship  of  the 
state's  selection. 

3.  That  all  institutions  or  societies  caring  for  children  receiving 
state  aid,  be  amenable  to  state  authority,  and  under  the  inspection  and 
supervision  of  the  State  Board  of  Charities. 

4.  That  all  persons  or  organizations  engaged  in  placing  children  in 
family  homes,  be  under  the  supervision  of  the  State  Board  of  Charities  and 

^  compelled  to  make  reports  and  obtain  a  license  annually  to  engage  in  such 
work. 

The  third  and  fourth  of  these  provisions  were  enacted  by 
the  legislature  of  191 1 ;  the  laws  were  signed  by  Governor  Hiram 
Johnson  and  are  in  active  operation.  The  closing  of  several  insti- 
tutions whose  work  was  below  standard,  and  the  limitation  of 
placing-out  work  to  approved  and  certified  agencies,  have  already 
justified  these  statutory  provisions.  That  even  greater  good 
results  will  follow  these  and  other  enactments  is  confidently  ex- 
pected by  all  true  friends  of  child-helping  work. 

There  is  a  growing  conviction  throughout  the  state  that  there 
should  be  less  institutional  care  of  dependents,  and  as  far  as  possi- 
ble children  who  can  not  be  cared  for  by  their  parents  should  be 
placed  in  good  family  homes. 

Dr.  Walter  Lindley  of  Los  Angeles,  formerly  superintendent 
of  the  Whittier  State  School  and  later  president  of  its  board  of 
trustees,  in  a  paper  upon  The  Evils  of  Institutional  Childhood, 
said:  "Every  child  placed  in  a  good  home  with  a  good  family 
stands  at  least  five  times  the  chance  of  proving  a  valuable,  inde- 
pendent citizen  that  the  child  reared  in  the  institution  has."  *  Sec- 
retary W.  A.  Gates  said:  "The  child  trained  in  an  institution 
completely  loses  the  home  idea.  ...  If  a  child  trained  in  an 
institution  should  marry  and  become  the  parent  of  children,  quite 
likely  he  or  she  would  turn  again  to  the  institution  to  raise  their 
children.  The  best  home-makers  are  raised  in  good  homes."  f 
Other  Californians  speak  in  words  equally  emphatic.     It  is  there- 

*  National  Conference  of  Charities  and  Correction.  Proceedings,  1905, 
p.  129. 

t  Address  before  the  Commonwealth  Club,  San  Francisco,  1910,  p.  8. 

34 


INSTITUTIONS   AND   CHILD   WELFARE   WORK 

fore  only  natural  that  the  placing-out  agencies,  the  organizations 
for  the  location  of  needy  and  dependent  children  in  family  homes, 
should  have  increasing  popularity  and  success.  As  in  many  of 
the  eastern  states,  this  form  of  child-helping  is  more  and  more 
accepted  as  the  best  method  of  providing  for  the  permanently 
homeless  child. 

The  California  Situation 

Putting  the  substance  of  this  chapter  into  a  few  paragraphs 
which  embody  the  consensus  of  opinion  and  the  testimony  of  the 
facts  so  far  presented,  and  which  it  is  expected  that  the  details 
of  later  chapters  will  confirm,^he  California  situation  is  as  follows: 

1 .  There  is  an  abnorniaT^~amounT^f  l;hild-dependency  in 
California  as  compared  to  other  states. 

2.  There  are  more  institutions  for  the  care  of  dependent 
children  than  a  similar  population  requires  in  other  states,  and 
more  than  are  really  demanded  by  the  California  situation. 

3.  The  state  is  paying  unnecessarily  large  amounts  for  the 
institutional  care  of  dependent  children  by  outgrown  methods. 

4.  The  dependency  of  many  children  can  be  remedied  by 
proper  legislation,  the  application  of  proper  methods  of  juvenile 
court  work,  adequate  official  supervision,  and  the  conservation  of 
family  homes. 

5.  Child-placing  in  family  homes  is  steadily  gaining  in  public 
favor  and  increasing  in  actual  practice. 

6.  The  new  laws,  which  give  authority  and  supervisory 
functions  over  the  private  institutions  receiving  state  support  to 
the  state  board  of  charities,  are  likely  to  be  of  great  benefit,  both 
in  standardizing  the  work  and  in  diminishing  the  abuses  by  which 
state  aid  has  been  received  by  many  not  properly  entitled  to  it. 


35 


PART  TWO 
ONE  HUNDRED  AND  ONE  INSTITUTIONS 


Our  country  is  now  overrun  with  various  charitable  associations, 
many  of  which  are  being  backed  up  by  large  means  and  larger  enthusiasm. 
But  nearly  all  such  societies  seem  to  me  to  be  engaged  in  offering  a  form  of 
merely  temporary  relief  that  invites  a  worse  recurrence  of  the  disease  treated, 
or  else  they  are  wasting  their  energies  in  attempting  to  cure  chronic  ills  which 
a  wiser  method  of  procedure  might  have  prevented  altogether. — William  A. 
McKeever. 

We  who  work  with  children  realize  why  many  of  them  are  weak  in 
mind  and  body,  and  know  that  in  a  majority  of  cases  the  parents  themselves 
should  have  been  in  custodial  care.  If  we  can  take  our  feeble-minded  chil- 
dren now  and  segregate  them,  and  prevent  in  the  future  their  bringing  chil- 
dren like  or  worse  than  themselves  into  the  world,  we  are  striking  at  the 
very  root  of  the  evil  which  now  has  our  asylums  and  workhouses  crowded; 
and  we  can  do  no  greater  thing  for  posterity. — Mrs.  J.  L.  Pickering. 

The  key  to  the  heart  of  a  delinquent  child  is  the  same  as  that  of  the 
normal  child,  that  is  sympathy,  some  one  to  love  him,  to  enter  into  his 
joys  and  sorrows,  to  be  a  sharer  of  his  plans  and  ambitions.  The  neglect 
of  this  means  of  character  building  in  institutions  for  delinquents  has,  how- 
ever, not  been  greater  than  the  neglect  of  it  outside  of  such  institutions.  The 
best  thought  of  the  world  in  child  study  and  in  child  psychology  is  needed 
to  solve  the  problems  of  delinquency  and  of  the  methods  to  be  employed  in 
reformatory  institutions.  Our  army  of  patient,  conscientious  reform  school 
workers  co-operate  to  discover  the  good  that  is  in  the  bad  boy  or  girl  in  the 
generous  spirit  of  Christian  sympathy  and  love  for  the  unfortunate. — H.  W. 
Charles. 

These  big  d's  we  deal  with,  the  defectives,  the  delinquents  and  the 
dependents,  ,  .  .  are  a  fearful  drag  upon  our  civilization.  If  some 
new  sudden  calamity,  like  a  pestilence,  a  wide-spread  earthquake,  or  the 
whisk  of  a  comet's  tail,  had  at  one  time  produced  all  this  wreckage,  how  we 
would  bestir  ourselves,  and  how  vivid  and  universal  would  be  the  realiza- 
tion of  this  evil  to  which  long  familiarity  has  made  us  supine.  From  the 
standpoint  of  eugenic  evolution  alone  considered,  these  classes  are  mostly 
fit  only  for  extermination  in  the  interests  of  the  progress  of  the  race.  Well 
for  them  that  we  are  impelled  to  action  by  higher  teaching  than  that  of  athe- 
istic evolutionists.  Some  even  of  the  social  philosophers  have  opposed  sys- 
tematic benevolence.  Nietzsche  .  .  .  condemned  even  Christianity 
because  it  so  exalted  pity,  and  thought  so  tenderly  of  and  conserved  the  weak, 
the  sick,  the  paupers  and  outcasts,  who  according  to  his  thought  ought  to 
be  left  to  their  fate  in  the  order  of  nature,  which  is  to  die  out  and  leave  the 
world  for  the  best  specimens  of  humanity. — G.  Stanley  Hall. 


CHAPTER  V 
SHERMAN    INSTITUTE 

BEFORE  entering  upon  the  detailed  study  of  public  and  pri- 
vate institutions  for  child-care  belonging  to  the  state  of 
California,  due  recognition  should  be  given  to  the  United 
States  government  school  for  Indian  children. 

The  Sherman  Institute  at  Riverside  for  the  care  of  Indian 
children  and  the  training  of  Indian  youth  of  both  sexes  was  founded 
in  1 90 1.  It  is  the  successor  to  a  small  private  institution  called 
the  Ferris  School  which  was  so  successful  in  developing  the  char- 
acter and  capacity  of  children  and  youth  of  the  Coast  Indian  tribes 
that  Congress  was  induced  to  take  up  the  task  on  a  larger  scale. 

The  first  national  appropriation  was  made,  the  site  was 
secured,  and  the  cornerstone  of  the  main  building  was  laid  in  1901. 
The  original  plant  of  nine  buildings  was  completed  and  the  school 
was  opened  in  July,  1902.  It  is  named  for  the  late  James  S.  Sher- 
man of  New  York,  then  a  staunch  friend  of  the  movement,  later 
vice-president  of  the  United  States. 

The  following  description  of  the  site  and  surroundings  is 
from  a  pamphlet  issued  by  Superintendent  F.  M.  Conser: 

Sherman  has  not  only  the  choicest  location  in  California,  but  also 
the  most  desirable  site  in  all  Riverside  Valley.  This  is  on  the  famous 
Magnolia  Avenue,  where  the  street  cars  pass  every  twenty  minutes.  The 
Avenue,  a  broad  boulevard  with  magnolias,  great  palms,  and  majestic 
eucalyptus  trees  on  either  side  and  graceful  peppers  down  the  center,  has 
an  especial  charm,  while  on  all  sides  stretch  miles  of  orange  and  lemon 
groves  and  luxuriant  tropical  growth  of  every  description.  Surrounding 
all  this  are  high  mountain  ranges,  the  peaks  of  which  are  white  with  snow 
during  the  greater  part  of  the  year.  Such  beauty  is  a  great  aid  to  happi- 
ness and  contentment  and  must  have  an  uplifting  and  refining  influence 
upon  any  normal  person,  and  particularly  is  it  valuable  to  the  young,  who 
are  impressionable  and  whose  ideals  are  in  the  process  of  forming.* 
*  Sherman  Institute  Pamphlet,  190S. 

39 


CHILD   WELFARE    WORK    IN    CALIFORNIA 

The  present  plant  has  34  buildings,  all  modeled  after  the 
mission  style  of  architecture.  The  most  imposing  structure  and 
the  one  about  which  all  group,  is  the  auditorium  or  school  building. 
It  contains  class  rooms,  the  library,  principal's  office,  and  an  assem- 
bly room,  the  seating  capacity  of  which  is  one  thousand.  There 
are  six  dormitory  buildings,  three  for  girls  and  three  for  boys.  A 
general  kitchen  and  dining  hall  provide  for  all  the  inmates.  There 
is  also  a  hospital,  industrial  halls  for  vocational  training,  and  16 
cottages  for  the  use  of  employes  and  teachers. 

Superintendent  Conser  says  in  the  same  pamphlet: 

The  facilities  for  industrial  training  are  now  excellent.  Special 
attention  is  given  to  the  industrial  courses,  which  are  placed  upon  an  equal 
plane  with  the  academic.  In  all  departments  the  work  is  definitely  out- 
hned  in  grades,  each  requiring  examination  for  promotion,  the  final  step 
being  graduation  with  a  certificate  of  the  work  covered. 

The  boys  have  a  large  industrial  hall,  including  the  departments  of 
carpentry,  painting  and  cabinet-making,  blacksmithing  and  wagon-mak- 
ing, shoe  and  harness  making,  tailoring,  and  printing.  In  another  build- 
ing, known  as  the  cold-storage  plant  and  boiler  house,  is  the  engineering 
shop.  This  gives  a  practical  course  in  steam-heating,  steam-fitting,  elec- 
trical connections  (as  in  wiring  buildings),  and  plumbing.  In  connection 
with  this  work  is  the  steam  laundry,  which  gives  practice  in  engineering 
and  manipulation  of  machinery.  Another  important  industrial  feature 
is  gardening.  With  the  forty  acres  of  lawns,  flowers,  and  shrubbery  the 
boys  have  excellent  advantages  in  landscape  gardening,  besides  getting 
valuable  lessons  in  horticulture  obtained  in  vegetable  gardening,  orange 
culture,  and  the  propagation  of  plants  in  the  greenhouse.  In  addition  to 
the  foregoing  is  a  modern  bakeshop,  which  supplies  all  the  bread  and  pastry 
consumed  by  the  student  body. 

The  individual  is  allowed  the  choice  of  his  trade,  and  after  proving 
himself  capable  is  encouraged  and  urged  to  complete  the  course. 

Corresponding  with  the  boys'  industrial  building  is  the  girls'  domes- 
tic science  hall.  Here  are  the  dressmaking  department  where  the  girls 
are  taught  by  professional  methods  the  complete  dressmaking  trade,  the 
plain-sewing  department,  the  primary  sewing,  and  the  needle-art  room. 
The  domestic  science  cooking  department  is  also  in  this  building.  This 
includes  a  dining  room  and  kitchen  equipped  for  thorough  training  in 
cooking  and  serving  in  a  scientific  as  well  as  a  practical  manner,  and  a  con- 
venient modern  housekeeping  cottage  where  the  girls  put  into  practice 
during  their  senior  year,  as  a  final  test,  their  knowledge  and  skill  in  cook- 

40 


SHERMAN    INSTITUTE 

ery  and  general  housekeeping  as  required  in  a  private  home.  The  entire 
work,  under  the  direction  of  a  graduate  teacher,  is  one  of  Sherman's  proud- 
est departments  and  one  which  offers  the  girls  great  advantages.  House- 
keeping in  all  details  is  taught  both  by  practice  and  theory.  The  many 
homes  among  the  employes  in  which  the  girls  can,  if  they  wish,  obtain 
employment  along  with  their  school  work  furnish  good  experience  in  pri- 
vate housekeeping,  while  the  dormitories  give  training  in  institutional 
housekeeping,  both  of  which  are  very  important.  Laundering  is  also 
emphasized.  This  is  given  as  a  special  course  called  "family  washing,"  in 
which  the  work  is  taught  and  executed  as  it  would  be  done  in  a  private 
family.* 

From  these  statements  it  will  be  seen  that  in  its  general  pur- 
pose it  is  similar  to  the  institutions  at  Carlisle,  Pennsylvania,  and 
Hampton,  Virginia.  Its  main  work  is  the  education  and  manual 
training  of  Indian  boys  and  girls  fourteen  to  twenty-one  years  of 
age,  belonging  principally  to  tribes  on  reservations  in  California 
and  Nevada,  with  a  few  from  Oregon  and  Washington. 

While  distinctively  a  training  school  for  Indian  youth,  it  has 
to  some  extent  become  an  orphanage.  To  this  institute  dependent 
Indian  children  six  to  fourteen  years  of  age  are  sent  for  continuous 
care.  The  older  boys  and  girls  who  have  homes  and  relatives 
return  to  them  for  two  or  three  months  each  year,  but  the  home- 
less dependents  remain  at  the  institute  until  fitted  for  self-support. 
Of  this  class  there  are  from  40  to  60  at  all  times  at  the  school.  The 
total  average  number  of  inmates  is  about  300. 

Because  the  institute  is  under  national  control  and  receives 
only  Indians  as  inmates,  it  is  not  tabulated  with  the  institutions 
wholly  belonging  to  California.     This  descriptive  statement  will 
be  sufficient  recognition  of  its  location  and  work. 
*Ibid. 


4« 


CHAPTER  VI 

INSTITUTIONS    FOR    DEFECTIVE   AND    DELINQUENT 

CHILDREN 

THE  direct  work  of  the  state  of  California  in  the  care  of 
children  has  been  mainly  confined  to  those  of  deficient 
mentality,  or  those  classed  as  delinquent.  This  survey  is 
chiefly  interested  in  private  institutions  caring  for  dependent  and 
delinquent  children,  but  would  be  incomplete  without  an  equally 
careful  record  of  the  provision  made  by  the  state  for  these  special 
classes.  A  brief  description  of  the  four  institutions  is  therefore 
given. 

For  convenience  of  reference  and  in  tabulating,  it  has  seemed 
best  to  join  with  these  the  four  institutions  under  private  manage- 
ment caring  for  delinquent  children.  This  places  in  a  single  chapter 
and  table  the  entire  work  of  the  state  for  the  permanent  care  of 
defectives  and  delinquents. 

The  plan  followed  throughout  this  study  is  to  give  brief 
textual  mention  of  each  institution,  the  number  and  name  cor- 
responding to  those  in  the  table  at  the  end  of  the  chapter,  where 
the  detailed  statistics  can  be  visualized  and  compared.  Space 
limitations  preclude  anything  more  than  mere  mention  of  things  of 
greatest  interest,  in  addition  to  the  necessary  descriptive  matter 
and  a  few  of  the  principal  statistics.  The  institutions  are  listed 
alphabetically  by  location. 

UNDER  PUBLIC  M.\NAGEMENT 
For  Feeble-minded 
I.  Sonoma  State  Home,  Eldridge 

Founded,  1885.  State  home  for  the  care  and  train- 
ing of  feeble-minded  and  epileptic  children.  Only  institu- 
tion in  the  state  for  these  classes.  Excellent  buildings; 
large  grounds;  healthful  location.     Several  small  cottages 

42 


Oak  Lodge — One  of  the  Cottages 
Sonoma  State   Home,   Eldridge.     (See  p.  42) 


Lux  Cottage 


Institution  Choir 


A  Class  in  Sloyd 
Sonoma  State  Home,   Eldridge.     (See  p.  42) 


DEFECTIVE    AND    DELINQUENT   CHILDREN 

and  special  schools  for  high  grade  imbeciles.  Some  ulti- 
mately return  to  parents  and  homes  for  permanent  resi- 
dence. Present  population  (1914)  exceeds  1,000,  and  the 
legislature  has  been  asked  to  provide  at  an  early  day  increase 
in  accommodations  up  to  i  ,200. 

Main  statistics  for  year  ending  June  30,  1912: 

Value  of  property ^718,700 

Capacity ,^070 

Regular  employes I42 

Average  children  in  care          g^g 

Annual  maintenance ^179,782 

Average  expense  per  capita ^1^2 

For  Delinquents 

Preston  School  of  Industry,  lone  (P.  O.  Waterman) 

Founded,  1889.  State  industrial  school  for  delin- 
quent boys.  Institution  for  northern  part  of  state.  Good 
buildings;  600  acres  of  land;  modern  equipment.  Receives 
boys  eleven  to  twenty-one  years.  Parole  system.  When 
a  boy  has  accumulated  sufficient  credits  he  is  recommended 
to  the  board  of  trustees  for  parole.  Those  paroled  under 
supervision  of  special  officers.  About  33  per  cent  of  boys 
from  normal  homes,  where  parents  are  living  together. 
It  is  claimed  that  over  60  per  cent  of  the  boys  paroled 
"make  good." 

Main  statistics  for  year  ending  June  30,  191 2: 

Value  of  property ^650,000 

Capacity 550 

Regular  employes 68 

Average  children  in  care          391 

Annual  maintenance $152,939 

Average  expense  per  capita ^391 

California  School  for  Girls,  Ventura 

Founded,  1914.  State  industrial  school  for  delin- 
quent girls.  Trustees  have  taken  into  their  control  the 
girls  heretofore  in  Girls'  Department,  Whittier  State  School. 
In  October,  191 5,  they  still  occupied  cottages  at  Whittier. 
Site  for  new  school  near  Ventura.  Plant  nearly  complete. 
The  superintendent,  Mrs.  C.  M.  Weyman,  wrote  at  above 
date:   "It  is  not  likely  that  we  will  move  before  February 

43 


CHILD   WELFARE   WORK    IN    CALIFORNIA 

or  March  of  next  year.  We  consider  it  inadvisable  to  take 
75  girls  up  there  during  the  construction  of  the  seven  build- 
ings now  being  erected.  Three  cottages  are  completed  and 
furnished  at  this  time,  but  eager  as  we  are  to  occupy  them, 
it  is  too  great  a  hazard  to  move  in  while  there  are  so  many 
workmen  on  the  premises." 

Main  statistics  for  year  ending  July  i8,  1914: 

Value  of  property  (new  plant  at  Ventura)    ....  5^125,000 

Capacity 100 

Regular  employes 23 

Average  children  in  care          55 

Annual  maintenance i?27,393 

/           Average  expense  per  capita $498 

4,  Whittier  State  School,  Whittier 

Founded,  1889.  State  industrial  school  for  delinquent 
boys.  Institutionfor  southern  part  of  state.  Until  founding 
of  California  School  for  Girls,  had  been  a  reform  school  for 
both  sexes,  with  cottages  for  girls  one  mile  from  adminis- 
tration and  boys'  buildings.  Entire  plant  to  be  used  for 
boys  in  future.  Fine  ranch  of  several  hundred  acres,  in- 
cluding orchards  and  walnut  grove.  Some  excellent  modern 
cottages;  main  building  to  be  remodeled,  and  capacity  of 
school  (19 1 4)  temporarily  reduced  to  175.  Parole  system. 
A  certain  number  of  credits  entitle  inmates  to  recom- 
mendation to  trustees  for  parole.  Those  on  parole  super- 
vised by  special  officers.  School  and  training  facilities 
good.     Excellent  work  done  on  many  lines. 

Main  statistics  for  year  ending  June  30,  1912: 

Value  of  property ^562,100 

Capacity 400 

Regular  employes 70 

Average  children  in  care 306 

Annual  maintenance $151,304 

Average  expense  per  capita 


UNDER  PRIVATE   MANAGEMENT 

For  Delinquents 

5.  California  Girls'   Training   Home,   520   Lincoln  Avenue, 
Alameda 

Founded,    1888.     An    institution   for   the   care   and 

44 


DEFECTIVE    AND   DELINQUENT   CHILDREN 

training  of  wilful  and  delinquent  girls.  Vocational 
training  in  connection  with  care  a  feature  added  in  recent 
years.  Four-story  frame  building,  not  fully  modern,  on  a 
tract  200  X  300  feet,  surrounded  by  high  board  fence,  in 
good  residence  part  of  city.  Accommodates  40  girls,  giving 
each  a  separate  room.  The  management  asks  that  all  wards 
stay  at  least  two  years.  School  to  the  eighth  grade  on  the 
premises.  Special  training  in  housekeeping,  laundry  work, 
plain  sewing,  dressmaking,  and  millinery.  A  few  aided  to 
outside  instruction  in  nursing  and  stenography.  Most 
inmates  stay  until  able  to  go  out  and  support  themselves. 
Main  statistics  for  year  ending  February  i,  19 10: 

Value  of  plant ^40,000 

Amount  of  endowment ^3,000 

Capacity 40 

Regular  employes 5 

Average  children  in  care 23 

Annual  maintenance ^4,182 

Average  expense  per  capita ^182 

6.  California  George  Junior  Republic,  Chino 

Founded,  1908.  An  institution  for  the  industrial 
training  and  character  improvement  of  wayward  and 
incorrigible  boys.  After  the  pattern  and  on  the  general 
basis  of  the  original  George  Junior  Republic  at  Freeville, 
New  York.  On  a  ranch  of  230  acres,  with  seven  buildings 
suited  to  the  needs  of  the  institution.  For  a  short  time 
after  founding,  cared  for  both  sexes;  present  plant  not  being 
adapted  to  adequate  separation  and  discipline,  to  avoid 
complications  on  account  of  sex,  work  was  limited  to  boys. 
Boys  are  expected  to  remain  until  they  "have  demonstrated 
five  characteristics,  namely:  First,  a  purpose  or  aim  in  life; 
second,  a  plan  to  work  out  that  purpose;  third,  pluck; 
fourth,  push;  fifth,  perseverance."  / 

Main  statistics  for  year  ending  July  i,  1914: 

Value  of  property ^55,100 

Capacity 90 

Regular  employes 21 

Average  children  in  care 75 

Annual  maintenance ]P43,47i 

Average  expense  per  capita ^580 

45 


CHILD   WELFARE    WORK    IN    CALIFORNIA 

7.  House  of  the  Good  Shepherd,  Pico  and  Arlington  Streets, 

Los  Angeles 

Founded,  1904.  An  institution  for  the  care  of  older 
girls  who  are  practically  incorrigible.  Managed  by  the  Sisters 
of  Mercy  of  the  Roman  Catholic  church.  Fine  three- 
story  brick  building,  modern,  on  tract  of  several  acres  in 
excellent  residence  part  of  city.  Training  in  housework, 
sewing,  and  laundry.  Claim  to  give  the  girls  good  educa- 
tional advantages. 

Main  statistics  for  year  ending  December  31,  1910: 

Value  of  property ]?  100,000 

Capacity 100 

Regular  employes 10 

Average  children  in  care 79 

Annual  maintenance $15,887 

Average  expense  per  capita $201 

8.  St.  Catherine's  Home,  901  Potrero  Avenue,  San  Francisco 

Founded,  1858.  An  institution  for  the  care  and  train- 
ing of  delinquent  and  dependent  girls.  Managed  by  the 
Sisters  of  Mercy  of  the  Roman  Catholic  church.  Main 
work,  industrial  training  of  wayward  girls,  and  especially 
those  inclined  to  immorality.  Some  merely  dependent 
admitted.  Sometimes  called  the  Magdalen  Home,  but  this 
title  resented  by  the  Sisters  as  their  work  is  not  confined  to 
this  class.  Three-story  and  attic  brick  building,  modern, 
on  commanding  site  of  eight  acres,  central  in  city.  Training 
given  in  housework,  needlework,  cooking,  and  laundry 
work. 

Main  statistics  for  year  ending  December  31,  191 3: 

Value  of  property $250,000 

Capacity 135 

Regular  employes 15 

Average  children  in  care 100 

Annual  maintenance $3'. '75 

Average  expense  per  capita $312 


46 


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49 


CHAPTER  VII 
JUVENILE   DETENTION    HOMES 

THE  detention  homes  of  the  county  juvenile  courts  are  the 
only  child-caring  institutions  in  California  under  public 
management,  except  the  four  state  institutions  described 
in  the  preceding  chapter.  They  are,  as  the  name  implies,  intended 
to  detain  the  children  in  comfort  and  safety,  but  only  until  their 
cases  may  be  adjusted  by  proper  court  process;  and  are  more 
generally  used  for  dependent  children,  or  those  merely  wayward, 
than  for  the  more  positively  delinquent. 

Dependents  awaiting  adjudication  of  their  status,  or  pend- 
ing search  for  responsible  relatives,  are  often  held  in  these  homes 
for  several  weeks  or  even  months,  making  the  institutions  modified 
children's  homes.  This  prolonged  stay  of  inmates  is  allowed  less 
in  the  counties  of  Alameda,  Los  Angeles,  and  San  Francisco,  where 
institutions  for  more  permanent  care  are  available,  than  in  the 
more  sparsely  populated  counties.  The  function  of  the  deten- 
tion home  closely  corresponds  to  that  of  the  receiving  homes  of 
the  child-placing  agencies. 

Probation  officers  have  estimated  that  at  least  three-fifths, 
and  in  some  counties  nine-tenths,  of  all  children  held  in  the  deten- 
tion homes  are  simply  dependents  under  care  because  of  misfor- 
tunes and  not  because  of  personal  faults.  Accurate  statistics  on 
this  point  can  not  now  be  obtained.  When  positively  delinquent 
children  are  taken  to  these  homes,  special  efforts  are  made  to 
have  a  speedy  hearing  of  their  cases,  so  that  they  may  be  sent  to 
the  state  schools  or  disposed  of  otherwise.  For  this  reason  the 
detention  homes  are  each  year  becoming  more  and  more  related 
to  the  care  of  dependent  children.  As  new  ones  are  being  estab- 
lished every  year,  the  list  given  in  this  chapter  is  only  approxi- 
mately complete. 

The  difficulty  of  obtaining  statistics  for  tabulation  is  very 
marked  in  regard  to  detention  homes.     In   some  of  them  no 

50 


i 


JUVENILE  DETENTION  HOMES 

records  are  kept,  such  work  being  done  at  the  probation  offices. 
In  others  only  such  records  are  kept  as  will  enable  the  caretakers 
to  prepare  their  per  diem  accounts  for  the  county  auditors.  In 
the  probation  offices  the  records  usually  relate  to  numbers  and 
kinds  of  cases,  many  of  the  children  involved  not  being  actually  in 
care  more  than  a  few  hours,  and  the  majority  not  going  to  the 
detention  home.  It  is  therefore  not  easy  even  for  the  probation 
officers  to  arrange  data  relating  to  those  children  actually  in  care 
at  these  institutions.  Failure  to  respond  is  not  always  a  refusal 
to  co-operate.  The  failure  is  often  due  to  actual  inability,  because 
of  imperfect  records,  to  provide  definite  statistics. 

From  10  counties  sufficient  data  were  received  to  permit  of 
tabulation.  Brief  outlines  of  these  reports  follow.  In  the  table 
they  are  listed  alphabetically  by  counties,  being  county  institu- 
tions. Below  they  are  given  the  same  number  and  order,  the  name 
being  followed  by  the  city  and  county.  Because  of  the  brief  stay 
and  rapid  changes  of  inmates,  the  average  per  capita  cost  is  based 
on  the  total  number  in  care  during  the  year. 

1.  Juvenile  Detention  Home,  413  Nineteenth  Street,  Oakland, 

Alameda  County 

Founded,  1909.  One  of  the  best  organized  and  most 
efficient  probation  offices  and  detention  homes  on  the 
Pacific  coast.  Good  two-story  frame  building  of  16  rooms; 
offices  and  home  in  same  plant.  Nine  probation  officers, 
two  of  whom  devote  entire  time  to  work  with  children. 
An  efficient  county  probation  committee.  Regular  physi- 
cians— men  for  the  boys,  women  for  the  girls. 

Main  statistics  for  year  ending  June  30,  1914: 

Value  of  property Rented 

Capacity 20 

Regular  employes 5 

Average  children  in  care 12 

Total  in  care  during  year 622 

Annual  maintenance $12,800, 

Average  expense  per  capita J?2i 

2.  Juvenile  Detention  Home,  Fresno,  Fresno  County 

Founded,  1914.  Not  yet  in  operation  a  full  year 
when  report  was  made;  statistics  estimated  for  balance  of 
year  for  tabulation  purposes. 

51 


CHILD   WELFARE   WORK    IN    CALIFORNIA 

Main  statistics  for  year  ending  December  31,  19 14: 

Value  of  property ^15,000 

Capacity 24 

Regular  employes 2 

Average  children  in  care !0 

Total  in  care  during  year 200 

Annual  maintenance ^2,400 

Average  expense  per  capita $12 

3.  Juvenile  Detention  Home,  Susanville,  Lassen  County 

Founded,  19 14.  Not  yet  in  operation  a  full  year; 
statistics  estimated  for  balance  of  year  for  tabulation  pur- 
poses. 

Main  statistics  for  year  ending  December  31,  1914: 

Value  of  property Rented 

Capacity 4 

Regular  employes 2 

Average  children  in  care 2 

Total  in  care  during  year 4 

Annual  maintenance f  1,000 

Average  expense  per  capita 5^250 

4.  Juvenile    Hall,    711    Eastlake   Avenue,    Los   Angeles,    Los 

Angeles  County 

Founded  (the  new  building),  191 2.  A  fine  structure 
of  brick  and  reinforced  concrete,  modern,  sanitary,  prac- 
tically fireproof,  with  latest  scientific  appliances  and  con- 
veniences. Finest  detention  home  in  the  west;  one  of  the 
best  in  the  country.  The  force  of  probation  officers  is 
about  30,  several  of  whom  are  assigned  exclusively  to  work 
with  children.  Excellent  record  system;  report  complete 
in  all  items  as  first  furnished. 

Main  statistics  for  year  ending  December  31,  1 9 1 3 : 

Value  of  property ^125,000 

Capacity 90 

Regular  employes 15 

Average  children  in  care 63 

Total  in  care  during  year 1,083 

Annual  maintenance ^30,154 

Average  expense  per  capita ^28 

5.  Juvenile  Detention  Home,  Riverside,  Riverside  County 

Founded,  19 10.  Fine  concrete  building,  planned  and 
erected  for  this  use.    The  accommodations  exceed  present 

52 


Rear  View,  Showing  Extent  of  Structure 


1 

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Patio  or  Inner  Court 
Juvenile   Hall,   Los  Angeles.     (See  p.  52) 


JUVENILE   DETENTION   HOMES 

needs,  but  show  excellent  county  spirit  in  providing  for  the 
future. 

Main  statistics  for  year  ending  December  31,  191 3: 

Value  of  property ^15.000 

Capacity 30 

Regular  employes 3 

Average  children  in  care 18 

Total  in  care  during  year 64 

Annual  maintenance !?3,700 

Average  expense  per  capita $58 

6.  Juvenile    Detention    Home,    10 15    O   Street,    Sacramento, 

Sacramento  County 

Founded,  1909.  Good  two-story  frame  house,  14 
rooms,  modern. 

Main  statistics  for  year  ending  June  30,  1914: 

Value  of  property Rented 

Capacity 12 

Regular  employes i 

Average  children  in  care 3 

Total  in  care  during  year        206 

Annual  maintenance ^2,488 

Average  expense  per  capita $\2 

7.  Juvenile  Detention  Home,  999  B  Street,  San  Bernardino, 

San  Bernardino  County 

Founded,  1909.  Two-story  frame  house,  12  rooms, 
partly  modern,  on  excellent  grounds.  Building  inadequate 
for  amount  of  work  done.  Proper  separation  of  delinquents 
and  dependents  impossible. 

Main  statistics  for  year  ending  January  i,  191 1 : 

Value  of  property ^6,000 

Capacity 12 

Regular  employes 2 

Average  children  in  care 9 

Total  in  care  during  year        127 

Annual  maintenance ^3.770 

Average  expense  per  capita $30 

8.  Juvenile  Detention  Home,  Otis  Street,  San  Francisco,  San 

Francisco  County 

Founded  (temporary  building),  1907.  For  several 
years  in  rented  building,  2344  Sutter  Street,  which  is  still 
occupied  during  191 5.     In  June,  191 4,  the  county  board  of 

53 


CHILD   WELFARE    WORK    IN    CALIFORNIA 

supervisors  secured  a  lot  137.5  feet  square  in  the  center 
of  the  city  and  began  the  erection  of  a  new  detention  home, 
to  cost  about  $125,000. 

According  to  the  San  Francisco  Chronicle  of  October 
10,  191 5,  the  building  was  then  nearing  completion.  The 
description  given  by  the  newspaper  indicates  that  it  is  of 
the  best  modern  construction,  and  contains  nine  stories  and 
basement.  It  affords  every  possible  facility  for  the  care  and 
segration  of  all  classes  of  inmates,  their  instruction,  recrea- 
tion, and  employment,  and  their  physical  and  psychological 
examination  and  treatment  by  expert  physicians,  surgeons, 
and  neurologists.  The  sum  originally  voted  for  the  struct- 
ure proved  too  small.  The  Chronicle  stated  that  the  board 
of  supervisors  had  already  appropriated  for  it  $161,381. 
Probably  more  will  be  required,  and  from  $10,000  to 
$20,000  additional  for  furniture  and  equipment.  The  site 
was  donated  by  the  board  of  education,  so  the  entire  expense 
is  in  the  building  and  its  furnishings.  The  total  value  of 
the  property  will  exceed  $200,000.  When  this  splendid  plant 
is  completed  San  Francisco  will  have  as  fine  a  detention 
home  as  can  be  found  in  the  United  States.  The  figures 
below  for  property  and  capacity  are  the  original  figures  for 
the  new  plant,  and  are  retained,  as  the  tables  were  in  type 
when  this  late  report  came  to  hand;  the  remainder  of  the 
statistics  are  for  the  children  cared  for  in  the  rented  plant 
on  Sutter  Street. 

Main  statistics  for  year  ending  June  30,  1914: 

Value  of  property $125,000 

Capacity 80 

Regular  employes 9 

Average  children  in  care 53 

Total  in  care  during  year 1.334 

Annual  maintenance $19,820 

Average  expense  per  capita $15 

9.  Juvenile  Detention  Home,  122  East  Figueroa  Street,  Santa 
Barbara,  Santa  Barbara  County 

Founded,  191 1.  An  ordinary  residence  property 
valued  at  $5,000.  A  very  large  majority  of  the  children 
cared  for  in  this  home  are  Spanish  or  Mexican. 

54 


JUVENILE  DETENTION  HOMES 

Main  statistics  for  year  ending  June  30,  1914: 

Value  of  property Rented 

Capacity 20 

Regular  employes 3 

Average  children  in  care 19 

Total  in  care  during  year 114 

Annual  maintenance ?3i099 

Average  expense  per  capita $27 

10.  Juvenile  Detention  Home,  Ventura,  Ventura  County 

Founded,  1909.  An  ordinary  residence  property 
valued  at  $3,000. 

Main  statistics  for  year  ending  December  31,  1913: 

Value  of  property Rented 

Capacity 3 

Regular  employes i 

Average  children  in  care 3 

Total  in  care  during  year 36 

Annual  maintenance $1,500 

Average  expense  per  capita $42 

In  addition  to  the  10  detention  homes  outlined  and  tabulated, 
there  are  eight  more  according  to  a  Hst  furnished  in  July,  1914,  by 
the  state  board  of  charities  and  corrections.  Of  these,  five  were 
visited  when  the  field  work  of  the  study  was  in  progress.  They 
are  listed  the  same  as  the  preceding  10,  giving  such  facts  as  are 
available,  but  omitted  from  the  table  for  lack  of  detailed  statistics. 

11.  Juvenile  Detention  Home,  Martinez,  Contra  Costa  County. 

12.  Juvenile  Detention  Home,  Eureka,  Humbolt  County 

j;  Said  to  be  a  good  home  doing  a  general  work.     Owing 

['r  to  lack  of  railroad  facilities  this  county  is  compelled  to  do 

much  work  for  children  that  in  some  of  the  interior  counties 
[  would  go  to  institutions  beyond  their  border. 

13.  Juvenile  Detention  Home,  Santa  Ana,  Orange  County 

Founded,  1910.  Modified  residence  property,  value 
$6,000.  Capacity,  12.  Regular  employes,  2.  Total  main- 
tenance, year  ending  June  30,  191 1,  was  $1,500.  The 
children  cared  for  are  nearly  all  dependents. 

14.  Juvenile  Detention  Home,  Monterey,  Salinas  County. 

15.  Juvenile  Detention  Home,  San  Diego,  San  Diego  County 

Somewhat  isolated  location  outside  the  city.  Build- 
ing in  bungalow  style,  value  about  $5,000.     Cost  of  main- 

55 


CHILD   WELFARE    WORK    IN    CALIFORNIA 

tenance,   year  ending  June   30,    191 1,   was  $2,497.    The 
number  of  children  in  care  said  to  be  comparatively  small. 

16.  Juvenile  Detention  Home,  812  Van  Buren  Street,  Stock- 

ton, San  Joaquin  County 

Two-story  frame  residence  of  20  rooms,  modern, 
adapted  for  present  use.  Capacity,  24.  Regular  em- 
ployes, 4.  Total  maintenance,  191 1,  was  $4,247.  Aver- 
age in  care,  18.  Have  semi-prison  arrangements,  including 
high  fences  and  wire-netting  topped  play  yards.  Major 
part  of  work  for  dependents.  Conditions  quite  good,  ex- 
cept the  prison  conditions  and  discipline. 

17.  Juvenile  Detention  Home,  San  Jose,  Santa  Clara  County 

Established  in  March,  1912.  Located  on  ground 
floor  of  Hall  of  Justice  and  consists  of  two  dormitories,  one 
for  boys  and  one  for  girls;  total  capacity  about  20,  with 
living  rooms  for  matron  and  children,  dining  room,  kitchen, 
and  so  forth.  Average  stay  of  inmates  about  five  days 
each.  About  eight  children  a  month  are  placed  in  family 
homes;  the  remainder  in  various  institutions.  Called  by 
the  county  probation  officer  a  "retention  jail."  Plans  for 
a  regular  detention  home  in  a  separate  building  now  (March, 
191 5)  before  the  county  board. 

18.  Juvenile  Detention  Home,  Santa  Rosa,  Sonoma  County 

Ordinary  eight-room  residence,  leased  and  adapted. 
Two  regular  employes.  Effort  is  being  made  to  have  the 
institution  as  much  like  a  family  home  as  possible.  Aver- 
age six  children  in  care. 

Some  of  the  other  counties  of  the  state,  instead  of  providing 
a  detention  home,  arrange  with  reputable  citizens  living  in  suitable 
houses  for  the  board  of  children  detained  to  await  court  action. 
Where  the  population  is  small  such  an  arrangement  covers  all  the 
ordinary  necessities  of  juvenile  detention. 


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CHAPTER  VIII 
CHILD-PLACING  AGENCIES 

CHILD-PLACING  in  the  families  of  relatives,  or  at  least 
in  those  of  the  same  tribe  or  race,  was  the  original  method 
of  providing  for  dependent  or  neglected  children.  It  can 
be  traced  back  in  historical  records  for  over  three  thousand  years. 
It  became  especially  important  in  the  early  centuries  of  the  Chris- 
tian era.  With  numerous  modifications,  due  to  the  changing  needs 
and  conditions  of  society,  it  has  continued  through  the  centuries 
to  the  present  time  in  the  various  nations  included  in  what  is  some- 
times called  western  civilization. 

Orphanages  and  other  similar  institutions  for  children  are 
first  mentioned  near  the  close  of  the  second  century  of  the  Christian 
era.  They  increased  in  number,  size,  and  importance  for  many 
centuries,  and  are  still  material  factors  in  child  welfare  work  in 
many  nations.  But  along  with  them  in  all  ages,  and  in  some 
degree  practiced  by. orphanage  officials,  child-placing  in  families 
was  continued.  It  was  only  by  thus  arranging  for  their  wards 
that  any  limitation  short  of  full  adult  life  could  be  put  upon  their 
stay  in  the  institutions.  And  some  peoples,  particularly  the  Jews, 
remained  loyal  to  the  original  method  down  to  recent  times. 
The  first  Jewish  orphanage  was  founded  in  1847  at  Frankfort, 
Germany. 

In  this  country  up  to  the  middle  of  the  nineteenth  century 
^  the  institutional  plan  may  be  said  to  have  had  the  right  of  way. 
Even  to  the  present  time  new  institutions  continue  to  multiply 
in  most  parts  of  the  nation.  In  the  days  of  the  fathers  and  also 
in  the  more  recent  years,  when  sympathetic  hearts  yearned  over 
orphan  and  other  homeless  children,  the  first  thought  was  to  erect 
a  home  or  asylum  for  their  care.  As  a  result  the  land  has  been 
dotted  with  orphanages  which,  however  congested  their  halls, 
were  never  able  to  receive  more  than  a  fraction  of  the  little  ones 
appealing  for  aid. 

But  a  new  era  in  child-helping  work  recently  began.     In  con- 

60 


CHILD-PLACING   AGENCIES 

nection  with  numerous  changes  in  the  type  of  institutional  service, 
and  great  advance  in  the  quaHty  of  institutional  care,  these  latter 
years  have  seen  a  rediscovery  of  the  original  plan  of  providing 
for  dependent  children.  Perhaps  it  was  only  the  direct  application 
of  the  intensive  scientific  methods  of  the  age  to  a  plan  never 
entirely  out  of  use.  Child-placing  in  families  by  incorporated 
societies  using  paid  trained  workers  and  operating  systematically 
was  the  most  important  development  in  child  welfare  work  during 
the  latter  half  of  the  nineteenth  century. 

The  rediscovery  of  the  old  plan,  or  the  modernization  of  the 
ancient  method,  resulted  from  a  new  and  special  realization  of 
the  value  and  purposes  of  the  family  home — God's  original  insti- 
tution for  the  rearing  of  children.  To  the  general  idea  was  soon 
added  the  conviction  in  many  minds  that  the  family  home  is  also 
a  divinely  prepared  place  for  the  rearing  of  dependent  children, 
and  far  better  than  any  man-made  institution.  Like  other  divine 
provisions  for  human  need,  the  supply  of  suitable  homes  always 
equals  the  sad  demand  of  needy  childhood.  Institutions  may  be 
filled  and  their  doors  closed  in  the  face  of  appealing  juvenile  need, 
but  it  has  become  a  social  proverb  that  "there  is  a  childless  home 
for  every  homeless  child." 

The  new  emphasis  put  upon  child-placing  in  families  does 
not  imply  antagonism  to  all  institutions;  only  a  modification 
of  ideas  as  to  their  proper  sphere  and  usefulness.  For  emergency 
cases  and  temporary  care  some  institutions  will  always  be  required. 
In  behalf  of  abnormal  and  defective  children  there  will  always  be 
a  field  for  institutional  service.  For  children  who  require  special 
medical,  surgical,  or  psychological  treatment,  or  general  social 
training  to  fit  them  for  favorable  entrance  into  private  families, 
institutions  are  a  necessity.  And  for  the  care  of  children  pending 
legal  or  other  decisions  as  to  their  needs  or  status,  or  while  search 
is  being  made  for  responsible  relatives,  good  institutional  care 
is  frequently  desirable  and  advantageous.  But  for  normal  depend- 
ent children  who  are  permanently  homeless,  there  is  no  place 
so  desirable  as  a  foster  home  in  a  carefully  selected  family. 

To  place  the  homeless  child  within  the  portals  of  the  child- 
less home  is  the  first  and  principal  purpose  of  the  child-placing 
agencies.     They  are  specially  organized  societies  engaged  in  sys- 

6i 


CHILD   WELFARE    WORK    IN    CALIFORNIA 

tematic  home  finding  for  normal  dependent  children.  Incidentally 
these  organizations  do  a  great  deal  of  family  rehabilitation,  relieve 
much  temporary  destitution,  and  make  arrangements  for  the 
admission  of  special  cases  into  remedial  or  reformatory  institu- 
tions. The  tendency  now  is  to  enlarge  the  scope  of  such  agency 
work  and  include  practically  all  lines  of  effort  necessary  to  either 
directly  provide  for,  or  through  co-operating  organizations  to 
arrange  for,  any  need  of  a  dependent  or  homeless  child. 

The  Children's  Aid  Society  of  New  York  began  child-placing 
work  in  1853.  The  Henry  Watson  Children's  Aid  Society  of  Balti- 
more was  founded  in  i860;  the  Boston  Children's  Aid  Society,  in 
1864;  the  Children's  Aid  Society  of  Pennsylvania,  in  1882;  and  the 
association  now  known  as  the  Illinois  Children's  Home  and  Aid 
Society,  in  1883.  Then  quickly  followed  about  30  other  state 
societies,  now  federated  in  the  National  Children's  Home  Society. 
Many  minor  home-finding  societies  also  have  been  organized.  A 
more  general  discussion  of  child-placing  in  families  will  be  found 
in  Chapter  XIX. 

The  use  of  the  family  home  has  not  been  confined  to  the 
permanent  placement  of  children  in  free  homes  for  adoption, 
or  to  be  reared  to  maturity  as  members  of  the  families,  although 
not  bearing  the  family  name.  In  Boston  and  some  other  eastern 
cities,  carefully  chosen  private  homes  have  long  been  used  as 
boarding  places  for  temporarily  dependent  children,  instead  of 
housing  them  in  congregate  institutions  as  in  former  years.  The 
boarded  children  remain  wards  of  the  placing-out  agency  and  are 
under  constant  supervision.  This  and  other  variations  of  the 
placing-out  method  of  child-care  have  spread  from  the  Atlantic 
to  the  Pacific.  At  the  present  time  the  best  classes  of  philanthropic 
workers  are  multiplying  the  uses  of  the  family  home  in  the  care 
of  dependent  children,  and  minimizing  the  number  of  those  to 
be  permanently  cared  for  in  institutions. 

In  California,  as  already  noted,  the  orphanage  plan  of  caring 
for  dependent  children  early  covered  the  state  with  institutions. 
Yet  in  1890  the  Children's  Home  Society  of  California  was  organ- 
ized with  headquarters  at  Los  Angeles.  It  is  a  member  of  the 
National  Children's  Home  Society  and  has  gradually  won  an  im- 
portant position  among  the  child-helping  institutions  of  the  state. 

62 


CHILD-PLACING    AGENCIES 

Other  organizations  emphasizing  various  phases  of  the  home 
placement  idea  have  been  estabhshed  in  more  recent  years.  As 
time  passed,  the  use  of  the  family  home  instead  of  the  congregate 
institution  has  received  greater  recognition  and,  in  spite  of  the 
prevalence  of  orphanages  and  homes,  has  become  quite  popular 
in  many  parts  of  the  state.  Even  those  most  closely  related  to 
the  institutions  realize  that  placing-out  agencies  are  valuable 
parts  of  the  child  welfare  system,  for  placement  in  a  family  home;: 
is  after  all  the  ultimate  destiny  of  all  those  in  institutional  care. 

The  great  need  at  present  is  better  mutual  understanding 
between  the  child-placing  agencies  and  the  institutions.  There 
should  be  definite  co-operation  where  now  there  is  more  or  less  of 
opposition.  There  is  a  field  for  the  agency  as  well  as  one  for  the 
institutions.  The  first  is  covered  by  the  three  terms  investigation, 
placing-out,  and  supervision;  the  other  in  the  more  or  less  perma- 
nent care  and  vocational  or  other  training  required  by  special 
classes  and  some  normal  children  whose  status  is  not  clearly  defined, 
or  who  are  held  temporarily  awaiting  court  action. 

Viewed  in  relation  to  the  number  of  children  actually  pro- 
vided for;  the  greater  potentiality  for  the  training  and  develop- 
ment of  the  child  in  a  family  home;  the  growing  conviction  of  the 
American  people  that  proper  placing-out  is  the  best  method  of 
providing  for  the  normal  homeless  child;  and  the  possibilities  of 
service  which  would  accrue  from  proper  co-operation,  matters 
relating  to  child-placing  agencies  are  seen  to  be  of  great  importance. 

There  are  nine  organizations  in  California  at  the  present 
time  (1915)  which  have  received  certificates  of  approval  from  the 
state  board  of  charities  and  corrections  under  the  law  of  191 1, 
and  are  doing  work  throughout  the  state  as  child-placing  agencies. 
Because  their  work  is  general,  including  preliminary  investigation 
of  children  and  homes,  the  arranging  for  the  placement  of  wards, 
chiefly  in  families  but  also  in  hospitals,  homes,  orphanages,  and 
schools  as  may  be  necessary,  and  the  after-supervision  of  placed- 
out  children,  these  agencies  are  treated  before  the  institutions 
for  permanent  care.  They  are  described  briefly,  and  a  few  chief 
statistics  are  given.  Detailed  statistics  will  be  found  in  the  table 
at  the  close  of  the  chapter  for  the  seven  certified  before  191 5. 

63 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

Children's  Home  Society  of  California,  2414  Griffith  Ave- 
nue, Los  Angeles 

Founded,  1890.  From  Preventive  Treatment  of 
Neglected  Children  by  Dr.  H.  H.  Hart,  the  following 
interesting  paragraph  is  taken: 

The  Children's  Home  Society  of  California  was  organized 
in  1890  by  Dr.  and  Mrs.  Jesse  R.  Townsend,  missionaries  of  the 
Society  of  Friends;  headquarters,  Los  Angeles.  The  society  had 
its  essential  beginning  under  a  cocoanut  tree  in  the  island  of 
Jamaica.  Dr.  and  Mrs.  Townsend,  having  lost  their  only  son 
from  fever  in  Jamaica,  knelt  at  his  grave  and  dedicated  their 
lives  to  the  cause  of  homeless  and  neglected  children.  They 
corresponded  with  Rev.  M.  V.  B.  Van  Arsdale,  founder  of  the 
Children's  Home  Society,  and  received  from  him  a  commission 
and  instructions  for  organizing  the  work  in  California.  A  beautiful 
property  was  purchased  at  Pasadena  in  1891,  for  a  receiving  home, 
but  was  subsequently  lost  for  lack  of  support.  * 

A  modern  two-story  frame  building  of  20  rooms  at 
2414  Griffith  Avenue,  Los  Angeles,  was  later  acquired  and 
named  Victoria  Home.  There  is  a  one-story  office  building 
adjacent,  and  both  are  located  on  a  good  corner  lot  in  a  quiet 
residence  district  of  the  city.  This  property  has  been  for 
many  years  the  center  of  a  state-wide  and  gradually  increas- 
ing work.  The  society  receives  no  state  aid,  but  depends 
for  it's  support  entirely  upon  private  contributions.  It 
offers  its  services  to  the  people  and  to  all  the  child-caring 
charities  of  the  state  for  the  purpose  of  placing  dependent 
children  in  approved  family  homes.  Some  of  the  orphan- 
ages and  other  institutions  are  yielding  to  the  general 
public  sentiment  in  favor  of  the  placing-out  system,  and  are 
co-operating  for  the  placement  of  their  available  wards  in 
selected  and  supervised  families. 

At  least  three  other  organizations  for  child-placing 
were  offshoots  of  this  society.  A  Mr.  Henderson,  who  had 
been  a  district  superintendent  located  at  Oakland,  seceded 
and  there  established  a  rival  organization.     This  was  short- 

*  Hart,  Hastings  H.:  Preventive  Treatment  of  Neglected  Children,  p. 
1 50.  Russell  Sage  Foundation  Publication.  New  York,  Charities  Publica- 
tion Committee,  191  o. 

64 


Victoria  Home — Societ}-  Headquarters,  Los  Angeles 


Foster  Home,  Los  Angeles 


Interior  of  Foster  Home,  lii,t;lilanJ,  California 
Children's  Home  Society  of  California,  Los  Angeles.     (See  p.  64) 


Office  and  Residence  of  District  Superintendent,  Berkeley 
Children's  Home  Society  of  California,  Los  Angeles.     (See  p.  64) 


Symbolic  Parade  Float 

Native  Sons'  and  Native  Daughters'  Central  Committee,  San  Francisco. 

(See  p.  69) 


CHILD-PLACING    AGENCIES 

lived  but,  because  the  quality  of  work  done  was  unsatis- 
factory, was  a  real  injury  to  the  cause  of  home  finding. 
Later  an  assistant  to  Mr.  Henderson  seceded  from  his  work 
and  established  a  small  society  under  the  name  of  Chil- 
dren's Rescue  Work  of  the  Pacific.  This  organization  main- 
tained a  precarious  existence,  doing  work  of  an  unsatis- 
factory character  until  May,  191 1,  when  it  was  forced  to 
discontinue  because  refused  a  certificate  of  approval  by 
the  state  board  of  charities. 

A  larger  and  more  important  offshoot  was  the  Chil- 
dren's Home-Finding  Society  of  California,  organized  in 
1894.  This  society  was  maintained  until  July,  1911, 
when  by  mutual  agreement  it  was  absorbed  by  the  Chil- 
dren's Home  Society  of  California  and  ceased  to  exist  as  a 
corporation.  All  of  its  property  passed  into  the  hands  of 
the  latter  society,  which  also  assumed  charge  of  all  children 
in  care  of  the  former  society,  or  under  its  supervision.  The 
property  thus  acquired  by  the  Children's  Home  Society 
is  a  large  residence  and  a  small  receiving  home,  located  on 
adjoining  lots  at  1921  Russell  Street,  Berkeley.  This  plant 
has  been  made  the  headquarters  for  the  society's  work  in 
northern  California. 

Main  statistics  for  year  ending  March  31,  1914: 

Value  of  plant $12,000 

Amount  of  endowment $58,000 

Capacity  of  receiving  home 30 

Regular  employes 20 

Annual  maintenance $31,253 

Placed  in  family  homes 365 

Total  children  in  direct  care 482 

2.  Humane  Society  for  Children,  Second  Street  and  Broadway, 
Los  Angeles 

A  society  to  prevent  cruelty  and  abuse  of  children, 
and  to  care  for  children.  Has  rented  offices,  but  plans 
to  erect  a  receiving  home  and  society  headquarters  to  cost 
about  $50,000.  Good  organization  and  corps  of  workers; 
high  standards  of  work;  fine  office  records;  definite  plans 
and  purposes.  Counted  among  the  best  child-helping 
organizations  in  the  state.     While  its  direct  work  of  child- 

63 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

care  and  its  placing-out  in  family  homes  and  institutions 
is  only  a  part  of  the  society's  work,  these  are  so  important 
that  they  are  accorded  recognition  by  the  state  board  of 
charities  and  corrections,  and  a  placing-out  certificate 
granted.  During  the  year  ending  May  i,  1914,  the  society 
investigated  1,513  cases,  in  which  3,192  children  were  in- 
volved. The  society  brought  377  cases  before  the  various 
courts  and  secured  343  convictions. 

Its  work  as  a  placing-out  agency  is  detailed  in  the 
table  at  the  close  of  the  chapter,  the  chief  statistics  being 
here  given. 

Main  statistics  for  year  ending  May  i,  1914: 

Value  of  equipment ^200 

Regular  employes 11 

Annual  maintenance $6,311 

Placed  in  family  homes 113 

Total  children  in  direct  care 361 

Oakland  Associated  Charities,  512  Broadway,  Oakland 

Founded,  1893.  A  society  whose  work  includes  the 
care  of  neglected  and  dependent  children.  Makes  a  spe- 
cialty of  arranging  for  the  location  and  welfare  of  wards  re- 
ceived from  the  juvenile  court.  Rented  offices.  Because 
of  its  large  boarding-out  work,  efficiently  performed,  the 
organization  is  granted  a  certificate  as  a  placing-out  agency. 
The  officers  of  the  society  found  it  impossible  to  accurately 
determine  the  part  of  their  work  devoted  directly  to  de- 
pendent and  delinquent  children.  The  total  expense  for 
maintenance  for  the  year  ending  August  31,  191 3,  was 
about  $10,000,  of  which  about  $4,000  was  in  salaries.  Of 
these  amounts  it  is  estimated  that  the  sums  given  below 
and  in  the  table  were  used  in  work  directly  related  to 
children. 

Main  statistics  for  year  ending  August  31,  191 3: 

Value  of  equipment $500 

Amount  of  endowment $1,000 

Regular  employes 3 

Annual  maintenance $7,778 

Placed  in  family  homes 41 

Total  children  in  direct  care 118 

66 


CHILD-PLACING   AGENCIES 

4.  Catholic  Humane   Bureau,  597  Oak  Street,  San  Francisco 

Founded  in  1907  by  the  union  of  the  Humane  Bureau 
of  St.  Vincent  de  Paul  and  the  CathoHc  Settlement  Society, 
both  of  which  have  been  for  years  important  factors  in 
the  child-helping  work  of  San  Francisco.  An  organization 
for  the  care  of  children,  especially  their  placement  in  private 
families  on  board  or  in  free  homes,  under  the  auspices  of 
the  Roman  Catholic  church.  The  headquarters  are  in  a 
large  frame  residence  building,  modern,  adapted  to  the 
uses  of  the  society.  Here  are  the  offices  and  a  receiving  home 
for  the  temporary  care  of  children.  So  well  is  the  work  organ- 
ized and  so  many  are  the  family  homes  available  that  only  in 
emergency  cases  is  the  receiving  home  required.  Only  about 
30  beds  are  provided  and  usually  less  than  30  children  are 
on  hand.  The  bureau  has  a  certificate  from  the  state  board 
of  charities  and  corrections  as  a  placing-out  agency. 

Main  statistics  for  year  ending  June  30,  1913: 

Value  of  property $12,000 

Capacity  of  receiving  home 30 

Regular  employes 11 

Annual  maintenance $57>969 

Placed  in  family  homes 334 

Total  children  in  direct  care 461 

5.  Children's   Agency   of   the   Associated   Charities,    1500 

Jackson  Street,  San  Francisco 

Founded  in  1903  as  a  department  of  the  Associated 
Charities  of  San  Francisco.  An  organization  to  place 
children  in.  selected  family  homes  and  give  them  special 
supervision.  At  first  the  main  work  done  was  the  placing- 
out  of  dependent  children  in  free  family  homes.  The 
basis  of  work  was  thus  defined:  "Through  it  any  chil- 
dren's institution  in  good  standing  in  this  community, 
may  have  its  wards  placed  in  private  homes  throughout 
the  state.  All  applications  for  children  are  carefully 
investigated,  the  offered  homes  visited  and  reported  on, 
and,  after  the  children  are  placed,  as  long  as  the  institution 
retains  control  and  is  responsible  for  them,  they  are  fre- 
quently visited." 

In  more  recent  years  this  line  of  work  has  dimin- 
67 


CHILD   WELFARE    WORK    IN    CALIFORNIA 

ished  and  the  work  of  boarding-out  children  has  so  increased 
as  to  become  the  main  industry  of  the  Children's  Agency. 
The  placing-out  for  permanent  care  in  free  famiHes  was 
administered  as  one  department,  and  the  boarding-out  in 
temporary  homes  as  another,  the  workers  and  finance 
being  distinct  and  separate.  By  an  arrangement  with  the 
Native  Sons'  and  Native  Daughters'  Central  Committee 
the  agency  has  since  191 2  'done  very  little  placing-out  in 
free  homes,  the  department  simply  continuing  supervision  of 
those  previously  placed.  But  the  boarding-out  department 
has  greatly  increased  its  activities  and  is  one  of  the  largest 
and  most  important  agencies  for  this  line  of  work  in  the  state. 

No  receiving  home  is  maintained,  as  all  children 
handled  come  from  the  various  institutions  or  the  juvenile 
court.  The  headquarters  are  in  the  Associated  Charities 
building,  of  which  organization  the  Children's  Agency  is 
perhaps  the  most  important  department.  The  agency  has 
a  certificate  for  placing-out  work  from  the  state  board  of 
charities  and  corrections,  and  the  statistics  given  are  mostly 
taken  from  the  report  made  to  the  board  by  the  agency. 

Main  statistics  for  year  ending  June  30,  1913: 

Value  of  property $11,500 

Regular  employes 10 

Annual  maintenance $51,278 

Placed  in  family  homes 201 

Total  children  in  direct  care 513 

6.  Eureka    Benevolent    Society,    4360    Farrell    Street,    San 
Francisco 

This  society  is  one  of  four  constituent  organizations 
composing  the  Hebrew  Board  of  Relief,  which  is  a  federa- 
tion to  increase  efficiency  of  charitable  work,  escape  dupli- 
cation of  effort  and  expense,  and  lessen  cost  of  administra- 
tion. The  board  was  founded  in  1900.  As  a  whole  it 
attends  to  all  classes  of  "outdoor  relief";  that  is,  non-insti- 
tutional aid  of  Jewish  persons  and  families.  The  Eureka 
Benevolent  Society  is  the  branch  or  department  related  to 
dependent  children,  and  was  given  a  certificate  as  a  placing- 
out  agency  in  December,  191 3,  by  the  state  board  of  chari- 

68 


CHILD-PLACING    AGENCIES 

ties  and  corrections.  Its  main  work  is  the  boarding-out 
of  dependent  children  in  private  famihes,  but  the  society 
is  planning  to  extend  its  work  and  add  placing-out  per- 
manently in  free  homes.  Only  Jewish  children  and  Jewish 
families  are  included  in  the  work  of  this  society. 

The  work  done  by  the  Eureka  Benevolent  Society  as 
a  licensed  placing-out  agency  at  the  date  of  its  report, 
September  i,  19 14,  had  been  in  progress  only  eight  months, 
hence  no  report  for  an  entire  year  is  possible.  The  figures 
in  the  outline  below  and  in  the  table  at  the  end  of  the  chap- 
-  ter  are  to  be  understood  as  relating  to  the  eight  months' 
period  after  the  reception  of  a  certificate  of  approval.  The 
94  "placed  in  family  homes"  include  all  under  the  society's 
control  so  located  at  date  of  report,  56  being  previous 
placements  accepted  after  receiving  the  board's  certificate. 
Many  of  the  children  aided  are  located  with  relatives,  and 
all  of  course  with  Jewish  families. 

Main  statistics  for  eight  months  ending  September 
1,  1914: 

Value  of  equipment ^500 

Regular  employes i 

Annual  maintenance ^9,889 

Placed  in  family  homes 94 

Total  children  in  direct  care 38 

Native  Sons'  and  Native  Daughters'  Central  Committee, 
Phelan  Building,  San  Francisco 

Founded,  1910.  An  organization  to  "bring  together 
the  homeless  child  and  the  childless  home."  The  two 
orders,  Native  Sons  of  the  Golden  West  and  Native  Daugh- 
ters of  the  Golden  West,  at  their  annual  meeting  in  May, 
1 9 10,  established  a  central  committee  for  the  definite  pur- 
pose of  placing  dependent  children  in  selected  families^ 
The  support  of  the  two  orders,  with  a  joint  membership  of 
about  40,000,  was  pledged  to  "  a  permanent  campaign  for  the 
child  and  the  home,  to  secure  for  every  little  one  the  kind 
of  treatment  and  loving  care  that  every  child  born  in 
California  is  entitled  to,  at  this  stage  of  our  civilization." 

Headquarters  were  established  in  San  Francisco,  and 
69 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

an  executive  secretary  was  put  in  charge  of  the  work.  In 
three  years  the  work  has  grown  to  large  importance.  No 
receiving  home  is  maintained  and  all  children  cared  for 
are  taken  directly  from  institutions  or  the  courts,  or  from 
parents  and  relatives,  to  foster  homes.  The  plan  includes  care- 
ful supervision  of  the  placed-out  children  by  the  local  Parlors 
of  the  orders,  and  by  the  agents  of  co-operating  charities. 

As  indicating  the  spirit  and  methods  of  the  organiza- 
tion, a  quotation  or  two  from  their  literature  will  be  of 
interest.  The  rules  adopted  require  that  the  applicants  for 
children  shall  be  "of  good  standing  in  the  community, 
temperate,  kindly  disposed,  fond  of  children,  not  seeking  a 
child  for  the  service  it  can  render,  but  willing  to  give  a  child 
the  training  and  home  influence  needed  for  proper  develop- 
ment. "  The  applicant  must  promise  that  "  the  child  shall  be 
accepted  as  a  member  of  the  family;  be  sent  to  school  until 
it  has  finished  at  least  a  grammar  course;  be  sent  to  church 
and  Sunday  school  regularly,  and  trained  in  the  religion  of 
its  parents;  and  asked  to  perform  only  such  services  as 
would  ordinarily  be  performed  by  a  son  or  daughter." 

Main  statistics  for  year  ending  March  31,  1914: 

Value  of  equipment ^500 

Regular  employes 5 

Annual  maintenance ^6,465 

Placed  in  family  homes 195 

Total  children  in  direct  care 195 

It  should  be  noted  that  only  two  of  these  seven  agen- 
cies are  doing  a  state-wide  placing-out  work — the  Children's 
Home  Society  of  California  and  the  Native  Sons'  and 
Native  Daughters'  Central  Committee.  Also  that  these 
two  agencies  are  placing-out  children  in  free  homes  as 
permanent  members  of  families,  while  nearly  all  the  work 
of  the  other  five  agencies  is  temporary  placement  on  board 
paid   by   the  organizations. 

Note. — Stuart  A.  Queen,  secretary  of  the  state  board  of  charities 
and  corrections,  in  a  letter  dated  August  20,  191 5,  states  that  the  Charity 
Organization  Society  of  Berkeley  and  the  Catholic  Ladies'  Aid  Society  of 
Alameda  County,  at  Oakland,  have  been  added  to  the  list  of  licensed 
child-placing  agencies.     They  are  described  in  Chapter  XVIII. 

70 


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73 


CHAPTER  IX 
NONSECTARIAN  ORPHANAGES  AND  HOMES 

FOLLOWING  the  classification  of  the  United  States  Census 
Bureau,  the  orphanages  and  homes  under  private  manage- 
ment are  considered  together  as  institutions  for  the  more 
or  less  permanent  care  of  children,  chiefly  those  merely  dependent 
but  in  some  cases  including  a  few  mild  delinquents.  With  them, 
because  doing  work  for  the  same  classes,  but  tabulated  separately, 
are  the  institutions  for  the  combined  care  of  adults  and  children. 

The  orphanages  were  usually  first  in  date  of  establishment, 
and  are  still  first  in  the  number  of  children  under  care.  Closely 
allied  to  the  orphanages  are  the  children's  homes.  In  some  cases 
the  distinction  is  one  of  name  only,  the  work  done  being  practically 
the  same.  In  others  there  are  considerable  differences  in  work  and 
methods,  due  to  later  organization  and  the  changing  needs  and 
conditions  of  recent  years. 

For  convenience  in  tabulating,  and  to  arrange  them  some- 
what according  to  their  character  and  relations,  the  75  institutions 
above  indicated  are  divided  into  four  groups  as  follows: 

Institutions  for  Dependents 

Nonsectarian  orphanages  and  homes 30 

General  church  orphanages  and  homes 18 

Cathohc  orphanages  and  homes 21 

Institutions  for  combined  care  of  adults  and  children 6 

Total  institutions  for  dependents 75 

These  75  institutions,  with  the  seven  regular  child-placing 
agencies,  make  a  total  of  82  private  organizations  for  the  perma- 
nent care  of  dependent  children.  An  outline  of  their  activities 
gives  a  nearly  complete  resume  of  this  line  of  work  in  California, 
except  what  is  done  for  dependents  by  the  juvenile  detention 
homes,  as  already  noted  in  Chapter  VII. 

It  should  again  be  mentioned  that  the  statistics  do  not  all 
coincide  in  date.    All  are  for  the  latest  fiscal  year  available.    In  a 

74 


NONSECTARIAN    ORPHANAGES    AND    HOMES 

few  reports  the  statistics  are  for  fiscal  years  ending  in  1910  and 
191 1,  obtained  when  the  field  work  of  the  study  was  in  progress. 
The  large  majority  of  the  reports  are  for  years  ending  sometime 
in  191 3  and  1914,  and  so  are  the  latest  possible.  These  were  ob- 
tained by  direct  correspondence  with  the  institutions,  and  by  the 
assistance  of  the  state  board  of  charities  and  corrections.  The 
variation  in  the  dates  of  these  reports  will  not  materially  affect 
their  usefulness. 

For  uniformity  of  information,  the  same  general  outline  of 
description  is  followed  in  all  these  chapters.  Brevity  has  been 
sought  even  at  the  expense  of  smoothness  of  expression.  Estimates 
of  property  valuation  were  nearly  always  made  by  officers  of  the 
institutions,  or  taken  from  the  printed  reports.  In  a  few  cases  it 
was  necessary  to  make  an  independent  valuation.  The  numbers, 
names,  and  order  in  the  chapters  correspond  to  the  same  in  the 
tables  at  their  close. 

This  chapter  outlines  the  30  institutions  classed  as  nonsec- 
tarian  orphanages  and  homes.  These  are  Protestant  or  non- 
Catholic,  but  in  nearly  every  case  definitely  Christian  institu- 
tions. Instead  of  nonsectarian,  the  word  interdenominational 
more  clearly  describes  their  religious  character,  as  a  majority  of  the 
members  of  their  governing  boards  are  members  of  the  various 
Protestant  denominations. 

These  30  institutions  differ  as  widely  in  their  individual 
characteristics  as  in  their  location,  and  they  are  scattered  from 
Sacramento  to  San  Diego.  They  are  located  in  1 7  different  towns 
and  cities,  four  being  in  Los  Angeles,  four  in  Oakland,  and  six  in 
San  Francisco.  In  aggregate  capacity  they  accommodate  2,639 
children,  the  capacity  of  the  smallest  being  five  and  the  largest 
200.  Most  of  them  serve  dependents  only,  but  five  receive  a  few 
mild  delinquents.  Fourteen  are  of  the  cottage  type  of  housing 
and  16  are  classed  as  congregate. 

The  plants  occupied  are  valued  at  $1,500,600.  The  endow- 
ments aggregate  $1,1 33,600.  The  annual  expense  for  maintenance 
varies  from  $1,500  to  $39,292,  with  an  aggregate  of  $358,788. 
From  public  funds  they  receive  annually  $92,587,  which  sum  is  26 
per  cent  of  the  total  cost  of  maintenance.  They  employ  259 
workers  and  average  in  care  i  ,959  children. 

75 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

In  the  main  these  are  worthy  homes  doing  excellent  work; 
but  there  are  a  few  inferior  institutions  in  the  group  which  should 
be  standardized  or  closed.  It  will  be  noted  that  the  average 
in  care  is  only  74  per  cent  of  the  aggregate  capacity,  leaving  nearly 
700  beds  unoccupied  in  the  30  institutions.  For  additional  interest- 
ing details,  the  three  sections  of  the  table  at  the  close  of  the  chapter 
may  be  studied.  A  brief  descriptive  outline  of  each  institution  is 
here  given. 
r.  Kern  County  Children's  Shelter,  Bakersfield 

Founded,  1906.  An  institution  for  orphan  and 
abandoned  children  of  both  sexes.  Present  status  unknown, 
as  no  reply  was  given  to  urgent  letters  requesting  informa- 
tion. 

Main  statistics  for  year  ending  January  i,  191 1 : 

Value  of  plant ^12,000 

Capacity cq 

Regular  employes 4 

Average  children  in  care          48 

Annual  maintenance ^4,800 

Average  expense  per  capita ^100 

2.  Fresno  County  Orphanage,  Fresno 

Founded,  1895.  An  institution  for  dependent  chil- 
dren, but  receiving  some  delinquents.  Private  management 
but  principally  public  support,  as  it  does  much  work  for  the 
county.  Fine  concrete  building— Spanish  style,  fully 
modern— and  frame  cottage;  both  on  valuable  ten-acre 
tract  within  the  city  limits. 

Main  statistics  for  year  ending  June  30,  191 3: 

Value  of  plant $42,000 

Capacity 5o 

Regular  employes 5 

Average  children  in  care          46 

Annual  maintenance $7,191 

Average  expense  per  capita $156 

3.  McKiNLEY  Industrial  Home,  Gardena 

Founded,  1900.  A  home  for  the  care  and  training 
of  dependent  boys.  Cottage  type.  A  two-story  frame 
administration  building,  modern,  with  quarters  for  30  boys 
and  general  kitchen  and  dining  room.  Three  other  cottages, 
capacity  25  each;  chapel,  school  house,  and  other  buildings. 

76 


NONSECTARIAN    ORPHANAGES    AND    HOMES 

Eighty  acres  of  land  in  high  cultivation.  Specialty,  homelike 
conditions  and  industrial  training.    A  high  grade  institution. 
Main  statistics  for  year  ending  June  30,  1913: 

Value  of  plant $80,000 

Capacity ,05 

Regular  employes q 

Average  children  in  care          go 

Annual  maintenance $12,621 

Average  expense  per  capita ^mq 

4.  1.  O.  O.  F.  Orphans'  Home,  Gilroy 

Founded,  1896.  An  orphanage  maintained  by  the 
Independent  Order  of  Odd  Fellows  in  California.  Cares 
for  the  orphan  and  half-orphan  children  of  Odd  Fellows  and 
Rebekahs.  Good  frame  building,  modern,  two  stories,  35 
rooms,  on  eight-acre  site  in  north  part  of  town. 

Main  statistics  for  year  ending  June  30,  1913: 

Value  of  plant $30,000 

Amount  of  endowment |r  qoo 

Capacity '      "  \qq 

Regular  employes - 

Average  children  in  care C2 

Annual  maintenance $13,07:1 

Average  expense  per  capita ^251 

5.  Bertha  Juilly  Home,  Lomita  Park* 

Founded,  1900.  A  cottage  boarding  home  conducted 
by  Mrs.  Bertha  Juilly.  One-story  frame  cottage,  with 
unfinished  additions.  Children's  quarters  poorly  adapted, 
unsanitary,  and  badly  furnished.  Mrs.  Juilly  uses  porch 
basket  with  electric  call  bell;  parties  can  place  baby  in 
basket  and  retire  without  recognition.  Nearly  all  inmates 
thus  received.  Poor  methods  of  investigating  applicants 
for  children;  little  effort  to  secure  completion  of  adoption; 
no  supervision  of  children  after  placement. 

Main  statistics  for  year  ending  January  i,  191 1 : 

Value  of  plant ^5000 

Capacity .^ 

Regular  employes ^ 

Average  children  in  care ^o 

Annual  maintenance $3,446 

Average  expense  per  capita $115 

*  Closed  in  1913  by  court,  on  complaint  of  state  board  of  charities. 

77 


CHILD   WELFARE   WORK    IN   CALIFORNIA 

6.  Belle  White  Home,  Sixth  and  Mateo  Streets,  Los  Angeles* 

Founded,  1906.  A  boarding  home  for  dependent 
children  conducted  by  Miss  Belle  White.  Those  in  care 
mainly  the  children  of  working  mothers.  Two-story  con- 
crete building,  partly  modern,  and  separate  frame  building, 
in  factory  and  foundry  section  of  city.  Very  crude,  poorly 
furnished,  and  unsanitary. 

Main  statistics  for  year  ending  May  i,  191 1 : 

Value  of  plant ?5i  5,000 

Capacity 50 

Regular  employes 3 

Average  children  in  care 35 

Annual  maintenance ^2,700 

Average  expense  per  capita $77 

7.  Lark  Ellen  News  and  Working  Boys'  Home,  Noysal  Grand 

Avenue,  Los  Angeles 

Founded,  1889.  A  boarding  home  for  newsboys  and 
others,  incorporated,  with  a  board  of  lady  managers.  In 
191  o  removed  from  central  part  of  city  to  a  tract  of  1 5  acres 
beyond  north  city  limits.  Owing  to  new  location  requiring 
ten-cent  fare  on  street  cars,  newsboys  and  other  working 
boys  of  downtown  district  can  not  use  this  home,  and  entire 
change  of  classes  served  is  necessary.  Two-story  brick 
building,  10  rooms,  partly  modern,  but  in  bad  repair  and 
poorly  furnished. 

Main  statistics  for  year  ending  November  i,  1910: 

Value  of  plant ]?i2,ooo 

Capacity 20 

Regular  employes 2 

Average  children  in  care 20 

Annual  maintenance ^2,132 

Average  expense  per  capita ^107 

8.  Los  Angeles  Orphans'  Home,  Colgrove,  Los  Angeles 

Founded,  1880.  A  cottage  institution  for  the  care  of 
dependent  children  of  both  sexes.  First  class  plant, 
erected  1910-1911.  Administration  building  contains 
offices,  reception  parlors,  general  kitchen  and  dining  room, 

*  Because  of  complaints,  investigated  August,   1914,  and  closed  by  state 
board  of  charities. 

78 


Home  on  Poinsettia  Ranch 


Ranch  Playground 
Lark  Ellen  News  and  Working   Boys'  Home,  Los  Angeles.     (See  p.  78) 


Main  Buildins; 


Coll.iiJr  l(ir  iJabies  and  Small  Children 


CliiLlrcn  at  Play 
West  Oakland  Home,  Oakland.     (See  p.  80) 


NONSECTARIAN    ORPHANAGES    AND    HOMES 

and  individual  rooms  for  lo  girls.  Several  cottages  are 
alike,  each  with  capacity  for  15,  some  for  boys  and  some  for 
girls.  One  cottage,  complete  domestic  unit  including 
kitchen  and  dining  room,  for  children  of  both  sexes  from 
two  to  six  years  of  age.  All  of  these  cottages  connected 
with  main  building  by  covered  archway;  and  all  steam 
heated  from  a  central  plant.  Fine  modern  institution. 
xMain  statistics  for  year  ending  April  30,  191 3: 

Value  of  plant ^100,000 

Amount  of  endowment $25,000 

Capacity 91 

Regular  employes 11 

Average  children  in  care 85 

Annual  maintenance $16,381 

Average  expense  per  capita $193 

9.  Strickland's  Home  for  Boys,  776  Eagle  Rock  Avenue,  Los 

Angeles 

Founded,  1904.  A  home  for  the  religious  training 
and  character  development  of  dependent  and  delinquent 
boys,  conducted  by  Mr.  and  Mrs.  Jacob  Strickland. 
Plant  poor  and  inadequate.  One  cottage  and  several  tent 
dormitories  on  five-acre  tract,  north  edge  of  city.  Value  of 
home  largely  in  the  fine  personal  influence  of  Mrs.  Strickland. 

Main  statistics  for  year  ending  December  31,  191 3: 

Value  of  plant $17,000 

Capacity 60 

Regular  employes 4 

Average  children  in  care 47 

Annual  maintenance $4,000 

Average  expense  per  capita $85 

10.  Chabot  School  of  Domestic  Arts,  66  Sixth  Street,  Oakland 

Founded,  1898.  A  school  of  domestic  science  for 
poor  girls,  who  are  trained  so  as  to  become  first  class  cooks 
and  domestic  servants.  Girls  from  twelve  years  up  taken 
and  expected  to  stay  at  least  a  year.  Great  demand  for 
the  girls  when  trained,  in  fine  homes  at  good  wages;  but 
institution  finds  it  impossible  to  secure  many  girls  who  are 
willing  to  take  the  training,  under  pledge  to  enter  domestic 
service  afterward.  With  accommodations  for  50,  the  school 
has  for  five  years  averaged  only  eight  to  twelve  girls  in 

79 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

attendance.     A   well-equipped    institution,    with    peculiar 
possibilities. 

Main  statistics  for  year  ending  January  i,  1911: 

Value  of  plant $50,000 

Amount  of  endowment 5^125,000 

Capacity 50 

Regular  employes 4 

Average  children  in  care 12 

Annual  maintenance $3,700 

Average  expense  per  capita $308 

1 1.  Crouch's  Infant  Shelter,  2225  Liese  Avenue,  Oakland 

Founded,  1902.  A  boarding  home  for  infants  and 
small  children,  conducted  by  Mrs.  Ina  Crouch.  Two-story 
frame  house,  14  rooms,  partly  modern.  Furnishings  poor 
and  inadequate. 

Main  statistics  for  year  ending  April  i,  191 1 : 

Value  of  plant $5,000 

Capacity 25 

Regular  employes 2 

Average  children  in  care 10 

Annual  maintenance $1,500 

Average  expense  per  capita $150 

12.  Ladies'  Relief  Society,  393  Forty-fifth  Street,  Oakland 

Founded,  1871.  An  institution  for  the  care  of  needy 
and  unprotected  dependent  children.  Brick  and  frame 
building,  new  and  modern,  with  two  annexes.  Ten  acres 
of  land  in  good  location.  Excellent  arrangement  for  infants 
and  small  children  in  a  separate  building.  Modern  ideas 
and  progressive  spirit. 

Main  statistics  for  year  ending  June  30,  191 3: 

Value  of  plant $50,000 

Amount  of  endowment $30,000 

Capacity 120 

Regular  employes 9 

Average  children  in  care 81 

Annual  maintenance $14,849 

Average  expense  per  capita $183 

13.  West  Oakland  Home,  793  Campbell  Street,  Oakland 

Founded,  1887.  An  institution  to  relieve  and  care 
for  foundlings,  orphans,  and  needy  children.  Two  large, 
frame  two-story  buildings,   modern,   united  at   front    by 

80 


NONSECTARIAN    ORPHANAGES    AND    HOMES 

administration  building;  on  half  block  of  ground  west  part 

of  city.     Receives  dependents  of  both  sexes  from  infants  to 

children  fourteen  years  of  age,  and  a  few  mild  delinquents. 

Main  statistics  for  year  ending  December  31,  1913: 

Value  of  plant $50,000 

Amount  of  endowment $5,000 

Capacity 150 

Regular  employes 10 

Average  children  in  care 80 

Annual  maintenance $13,914 

Average  expense  per  capita $'74 

14.  Children's  Training  Society,  Wilson  and  Delmar  Streets, 

Pasadena 

Founded,  1902.  A  temporary  home  for  the  care  and 
training  of  neglected,  homeless,  and  abandoned  children. 
Five  frame  buildings,  all  modern:  boys'  home,  girls'  home, 
baby  nursery,  hospital,  and  chapel.  Fine  tract  of  land 
centrally  located.  Management  determined  to  restrict 
numbers  and  make  conditions  homelike.  Children  cared 
for  above  the  average  usually  found  in  institutions.  Select 
dependents.    Fine  spirit  in  home,  and  excellent  care  given. 

Main  statistics  for  year  ending  June  30,  1913: 

Value  of  plant $50,000 

Capacity            68 

Regular  employes 11 

Average  children  in  care 60 

Annual  maintenance $12,180 

Average  expense  per  capita $203 

15.  National    Industrial    and    Orphans'    School,    265    Ohio 

Street,  Pasadena 

Founded,  1910.  An  institution  to  care  for  Negro 
orphan  children  and  to  train  Negro  girls  for  successful 
domestic  service.  First  located  at  Beulah  Heights,  Oak- 
land. In  191 3  removed  to  Pasadena.  Have  also  farm  for 
care  of  Negro  boys  at  Lau  Fair,  San  Bernardino  County. 

Main  statistics  for  year  ending  December  31,  191 3: 

Value  of  plant $4,600 

Capacity 44 

Regular  employes 8 

Average  children  in  care 50 

Annual  maintenance $5i70i 

Average  expense  per  capita $114 

81 


CHILD   WELFARE    WORK    IN    CALIFORNIA 

i6.  Sacramento  Orphanage  and  Children's  Home,  Palmetto 
Heights,  Sacramento 

Founded,  1867.  An  institution  for  the  care  and  train- 
ing of  dependent  children  of  both  sexes.  Originally  down- 
town; later  removed  to  farm  of  17  acres  at  edge  of  city. 
In  1913  the  Sacramento  Children's  Home,  a  downtown  insti- 
tution, united  with  the  orphanage,  and  all  its  wards  were 
removed  to  the  plant  at  Palmetto  Heights.  As  seen  above, 
there  is  union  in  name  as  well  as  in  work.  The  institution 
now  has  a  board  of  1 7  lady  managers,  made  up  from  the  two 
former  boards.  Type  of  plant  mainly  cottage.  Main 
building,  however,  is  a  large  two-story  frame  structure, 
modern,  and  contains  administration  rooms  and  quarters 
for  60  of  the  larger  boys.  There  are  eight  two-story  frame 
cottages,  modern,  each  a  complete  domestic  unit,  for  a  house 
mother  and  a  varied  family  not  exceeding  20  children.  No 
boys  over  seven  years  old  are  cared  for  in  the  cottages. 
The  illustrations  include  three  pictures  of  the  Stork's  Nest, 
a  new  cottage  for  wee  wards.  An  excellent  institution, 
permeated  with  exceptionally  homelike  spirit.  The  valua- 
tion of  plant  given  below  is  probably  too  small. 
Main  statistics  for  year  ending  July  i,  1914: 

Value  of  plant ^116,000 

Capacity 200 

Regular  employes 19 

Average  children  in  care 145 

Annual  maintenance ^29,240 

Average  expense  per  capita ^202 

17.  San  Bernardino  Orphans'  Home,  246  Base  Line,  San  Ber- 
nardino 

Founded,  1891.  A  temporary  home  for  dependent 
children,  established  by  the  associated  charities,  and  later 
placed  under  the  management  and  control  of  a  board  of 
lady  managers.  In  recent  years  practically  entire  support 
from  public  funds,  as  institution  was  made  official  home  for 
the  care  of  county  dependents.  Old  frame  residence,  15 
rooms,  partly  modern,  on  fine  tract  beautified  with  palms 
and  other  trees. 

82 


Typical  Cottage  Family 


Gardening.     Boys'  Hail  in  Distance 
Sacramento  Orphanage  and  Children's  Home,  Sacramento.     (See  p.  82) 


Stork's  Nest  Dining  Room 
Sacramento  Orphanage  and  Children's  Home,  Sacramento.     (See  p.  82) 


NONSECTARIAN    ORPHANAGES    AND    HOMES 

Main  statistics  for  year  ending  January  i,  19 14: 

Value  of  plant ^6,000 

Capacity 40 

Regular  employes 3 

Average  children  in  care 35 

Annual  maintenance ^4,000 

Average  expense  per  capita ^i  14 

18.  Children's  Home  Association,  Sixteenth  and  Ash  Streets, 

San  Diego 

Founded,  1881.  An  institution  for  the  care  of  de- 
pendent children,  and  when  possible  to  find  them  homes  in 
good  families.  Main  building,  three-story  frame,  modern, 
but  somewhat  old;  boys'  cottage,  new,  modern,  well  fur- 
nished; Nellie-Inez  Cottage  for  infants  and  small  children, 
modern,  new,  and  excellent;  and  Holly  Sefton  Memorial 
Hospital  (see  Children's  Hospitals,  p.  1 74).  Situated  on  five 
acres  belonging  to  city,  at  corner  of  public  park.  Extra 
good  conditions,  evidence  of  especially  fine  care,  better  than 
average  institutional  spirit  and  facilities.  Somewhat 
exclusive  and  select.    Favors  placing-out  in  family  homes. 

Main  statistics  for  year  ending  June  30,  1914: 

Value  of  plant $40,000 

Amount  of  endowment      . ^35,600 

Capacity 105 

Regular  employes 13 

Average  children  in  care          98 

Annual  maintenance          $12,540 

Average  expense  per  capita $128 

19.  Helping  Hand  Nursery,  3145  G  Street,  San  Diego 

Founded,  19 10.  A  home  for  the  care  of  dependent 
children,  especially  those  of  working  mothers.  Originally 
intended  for  a  day  nursery  but  sphere  enlarged,  because 
of  manifest  need,  into  home  for  permanent  care. 

Main  statistics  for  year  ending  May  i,  1914: 

Value  of  plant $6,000 

Capacity 40 

Regular  employes 4 

Average  children  in  care 38 

Annual  maintenance $5,440 

Average  expense  per  capita           $143 

83 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

20.  Boys'  and  Girls' Aid  Society,  460  Baker  Street,  San  Francisco 

Founded,  1874.  A  special  home  and  training  school 
originally  for  both  sexes,  but  confining  its  work  in  recent 
years  to  boys.  Doing  a  splendid  work  for  a  difficult  class: 
those  not  sufficiently  wayward  to  require  assignment  to  the 
reform  school,  and  too  hard  to  manage  to  be  placed  in 
family  homes  or  orphanages  without  preliminary  training. 
Main  building,  three-story  frame,  modern.  Charles  R. 
Bishop  Annex,  three-story  frame,  modern,  with  vocational 
class  rooms  and  individual  rooms  for  25  boys.  Summer 
camp  at  Sebastopol.  Great  fruit  region;  boys  pick  berries 
and  other  fruits  for  pay,  each  one  retaining  his  own  wages 
and  priding  himself  on  amount  earned. 

Main  statistics  for  year  ending  June  30,  1914: 

Value  of  plant $100,000 

Amount  of  endowment $30,000 

Capacity         150 

Regular  employes 16 

Average  children  in  care          143 

Annual  maintenance $37,266 

Average  expense  per  capita $261 

21.  Infant  Shelter,  1025  Shotwell  Street,  San  Francisco 

Founded,  1874.  An  institution  for  the  care  of  home- 
less and  dependent  children,  and  aid  to  working  mothers. 
Management  believes  in  small  institution  with  homelike 
spirit  and  extra  care.  Specially  fine  provision  for  the  care 
of  infants;  plenty  of  competent  help;  very  successful  in 
reducing  mortality  and  rearing  healthy,  bottle-fed  babies. 
Best  equipped  and  managed  institution  for  infants  and  small 
children  in  the  state.  Favorable  to  placement  in  family  homes. 
Three-story  frame  building,  modern,  with  annexes,  sleeping 
porches,  sun  parlors,  and  so  forth.  (See  illustrations  facing 
pages  162  and  163.) 

Main  statistics  for  year  ending  March  31,  1914: 

Value  of  plant $30,000 

Amount  of  endowment $8,000 

Capacity 51 

Regular  employes 14 

Average  children  in  care          48 

Annual  maintenance $11,260 

Average  expense  per  capita          $235 

84 


NONSECTARIAN    ORPHANAGES   AND    HOMES 

22.  Ladies'    Protection   and   Relief   Society,    1200   Franklin 

Street,  San  Francisco 

Founded,  1868,  to  provide  a  home  for  orphaned 
and  dependent  children.  Brick  and  frame  building,  mostly 
faced  with  cement,  three  stories,  modern  conveniences,  but 
structure  old-fashioned  and  not  adapted  to  modern  use. 
An  institution  of  very  great  possibilities,  largely  unrealized. 
Need  new  building  and  modern  methods. 

Main  statistics  for  year  ending  December  31,  191 3: 

Value  of  plant ^100,000 

Amount  of  endowment ^350,000 

Capacity I35 

Regular  employes 21 

Average  children  in  care          100 

Annual  maintenance ^24,850 

Average  expense  per  capita ^249 

23.  San    Francisco    Babies'   Aid,    Twenty-ninth   Avenue,    San 

Francisco 

Founded,  1908;  incorporated,  191 3.  A  cottage  home 
for  the  temporary  care  of  dependent  babies,  especially 
foundlings.  From  a  printed  report  of  the  institution  for 
1910  the  following  is  quoted: 

In  closing  the  foundling  asylum,  the  directors  knew  that 
they  had  to  maintain  some  place  for  the  reception  of  foundlings. 
A  cottage  was  built  of  refugee  shacks  on  one  corner  of  the  property, 
thereby  retaining  title  to  the  land,  as  well  as  making  necessary 
provision  for  the  work.  This  cottage,  called  the  "Babies'  Aid," 
has  a  sheltered  porch,  where  the  cradle  of  tragedy  with  the  electric 
warning  bell  is  conveniently  placed.  The  babies  left  are  mothered 
tenderly,  receive  a  medical  examination,  and  are  given  to  foster 
mothers  until  they  are  adopted. 

The  "cradle  of  tragedy"  is  a  box  with  a  spring  bottom 
on  which  a  pressure  of  two  pounds  rings  an  electric  bell  in 
the  nurse's  sleeping  room.  It  is  set  just  inside  the  screened 
porch,  and  above  it  is  a  brass  plate  with  the  words  "  Recep- 
tacle for  Foundlings."  Outside  the  cottage  beside  the  door 
is  a  box  sign,  illuminated  at  night,  on  which  are  the  words 
"  Babies'  Aid."  The  unfortunate  mothers  are  expected  to 
come  at  night,  leave  the  unwelcome  child  in  the  receptacle, 

85 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

and  slip  away  unrecognized  and  unknown.  By  the  time 
the  nurse,  aroused  by  the  electric  bell,  can  respond  to 
receive  the  baby,  the  mother  has  disappeared  in  the  dark- 
ness. 

The  Catholic  Encyclopedia,  in  its  article  on  Foundling 
Asylums,  has  the  following  interesting  description  of  former 
laws  and  customs  in  France:  "Under  the  government  of 
the  Revolution  all  foundlings  were  treated  as  wards  of  the 
nation.  .  .  .  In  1811  this  legislation  was  repealed, 
and  the  care  of  foundlings  was  transferred  from  the  central 
authorities  to  the  departments.  At  the  same  time  it  was 
decreed  that  every  foundling  asylum  should  be  provided 
with  a  revolving  crib.  The  consequence  was  that  the 
number  of  abandoned  children  greatly  increased,  and  the 
crib  had  to  be  abolished."* 

The  revolving  crib,  or  tour,  was  one  fixed  in  the  wall 
or  door  of  the  asylum,  so  that  when  turned  outward  the 
mother  could  place  her  child  in  it  and  retire  unseen.  The 
asylum  people,  warned  by  a  bell,  would  then  turn  the  crib 
toward  the  interior  and  receive  the  child.  It  will  be  seen 
that  the  Babies'  Aid  has  revived  the  practice  of  a  century 
ago,  long  since  outgrown  and  abandoned  by  the  French 
people. 

The  statistics  are  old,  but  no  details  of  later  date 
are  available,  although  the  general  conditions  in  July,  19 14, 
were  as  above  described. 

Main  statistics  for  year  ending  January  i,  191 1  :t 

Value  of  plant $5,000 

Capacity            5 

Regular  employes i 

Average  children  in  care 5 

Annual  maintenance $4,000 

24.  San   Francisco  Nursery  for  Homeless  Children,   Lake 
Street  and  Fourteenth  Avenue,  San  Francisco 

Founded,  1895.     An  institution  for  the  care  of  orphan 

*The  Catholic  Encyclopedia.  Volume  VI,  Foundling  Asylums,  pp.  159- 
160.     New  York,  Robert  Appleton  Company,  1909. 

fAverage  expense  per  capita  omitted  because  of  brief  stay  and  rapid  changes 
ofjnmates. 

86 


Babies'  Aid  Cottage.     Old  Foundling  Asylum  to  the  left 


Cradle  of  Tragedy — Substitute  for  European  Revolving  Crib 
San  Francisco  Babies'  Aid,  San  Francisco.     (See  p.  85) 


NONSECTARIAN    ORPHANAGES    AND    HOMES 

and  homeless  children.  Fine  brick  and  stone  building, 
three  stories  and  high  basement,  modern,  full  block  of 
ground,  sightly  location.  Good  furnishings,  small  dormi- 
tories, and  specially  homelike  conditions.  Favorable  to 
placing-out  work. 

Main  statistics  for  year  ending  June  30,  191 3: 

Value  of  plant ^100,000 

Capacity 100 

Regular  employes 12 

Average  children  in  care 64 

Annual  maintenance ^7,880 

Average  expense  per  capita $123 

25.  San  Francisco  Protestant  Orphan  Asylum,  215   Haight 

Street,  San  Francisco 

Founded,  185 1 .  An  institution  for  the  care  of  orphan 
and  half-orphan  children.  First  orphanage  on  the  Pacific 
coast.  Stone  main  building,  three  stories,  modern,  with 
frame  annexes  and  chapel.  Fine  block  of  land,  shaded  by 
palms  and  deciduous  trees,  and  surrounded  by  high  stone 
wall.  (See  frontispiece  of  this  volume  and  illustrations  facing 
pages  132  and  133.)  The  asylum  is  strict  in  applying  terms 
of  admission,  and  takes  only  those  actually  orphans  or  half- 
orphans.  A  fine  institution,  doing  better  than  average  work. 
Value  of  property  never  estimated  by  board.  Present 
estimate  based  on  comparison  of  properties  and  income 
from  investments. 

Main  statistics  for  year  ending  January  i,  19 14: 

Value  of  plant ^200,000 

Amount  of  endowment $400,000 

Capacity 150 

Regular  employes 15 

Average  children  in  care I39 

Annual  maintenance %9'292 

Average  expense  per  capita $283 

26.  Southern  California  Masonic  Orphanage,  San  Gabriel 

Founded,  1909.  An  orphanage  conducted  by  the 
Free  and  Accepted  Masons  of  California.  Receives  only 
the  orphan  and  dependent  children  of  members  of  the 
order.  Very  large  frame  building,  three  stories,  modern, 
with  10  acres  of  land,  partly  in  ornamental  groves,  partly 

87 


CHILD   WELFARE    WORK    IN    CALIFORNIA 

in  gardens.    Excellent  furnishings  and  competent  employes. 
Supported  by  a  per  capita  tax  on  members  of  the  order. 
Main  statistics  for  year  ending  October  31,  1913: 

Value  of  plant $75,000 

Capacity 150 

Regular  employes 12 

Average  children  in  care 50 

Annual  maintenance $18,000 

Average  expense  per  capita $360 

27.  Home  of  Benevolence,  Eleventh  and  Martha  Streets,  San  Jose 

Founded,  1877.  A  home  for  the  care  of  orphan, 
half-orphan,  and  abandoned  children.  Two-story  frame 
building,  not  fully  modern,  on  tract  of  eight  acres,  edge  of 
city.     Conservative.     Should  adopt  modern  methods. 

Main  statistics  for  year  ending  December  31,  191 3: 

Value  of  plant $50,000 

Amount  of  endowment $20,000 

Capacity 100 

Regular  employes 7 

Average  children  in  care 75 

Annual  maintenance $11,182 

Average  expense  per  capita $149 

28.  Boys'  and  Girls'  Aid  Society,  2801  Arlington  Avenue,  South 

Pasadena 

Founded,  1888.  An  institution  for  the  rescue  of 
homeless,  neglected,  and  abused  children,  the  securing  of 
suitable  family  homes  or  employment  for  such,  and  to 
maintain  systematic  oversight  of  all  children  committed  to 
its  charge.  Three  large  three-story  frame  buildings, 
modern,  with  two  acres  of  ground  in  a  splendid  location. 
Receives  dependents  and  a  few  mild  delinquents.  Favorable 
to  placement  work,  but  dilatory  in  actual  application  of 
expressed  purpose.  Doing  excellent  work  of  the  ordinary 
institutional  kind. 

Main  statistics  for  year  ending  June  30,  191 3: 

Value  of  plant '.      .      .  $70,000 

Capacity 130 

Regular  employes 12 

Average  children  in  care 143 

Annual  maintenance $19,080 

Average  expense  per  capita $133 

88 


NONSECTARIAN    ORPHANAGES    AND    HOMES 

29.  Stockton  Children's  Home,  Stockton 

Founded,  1882.  Incorporated,  1906.  An  institu- 
tion for  the  care  of  dependent  children  of  both  sexes.  Ex- 
cellent new  buildings,  concrete,  two-story,  mission  style, 
with  all  modern  improvements. 

Main  statistics  for  year  ending  December  31,  191 3: 

Value  of  plant ^20,000 

Capacity 100 

Regular  employes 5 

Average  children  in  care 50 

Annual  maintenance ^7,400 

Average  expense  per  capita ^148 

30.  Good  Templars'  Home  for  Orphans,  Vallejo 

Founded,  1869.  An  institution  for  the  care  of  home- 
less and  orphan  children.  Three-story  frame  building, 
partly  modern,  on  a  commanding  eminence  near  Vallejo. 
Farm  of  175  acres  under  high  cultivation  at  the  home,  and 
1,600  acres  of  other  land  up  the  Sacramento  Valley.  The 
order  of  Good  Templars,  under  whose  auspices  the  home 
was  founded,  once  very  strong  in  the  state,  has  declined 
in  recent  years.  Buildings  are  old  and  need  repairs  and 
improvement.  Good  home  spirit  and  excellent  work  being 
done. 

Main  statistics  for  year  ending  June  30,  191 3: 

Value  of  plant $60,000 

Amount  of  endowment ^100,000 

Capacity 150 

Regular  employes 12 

Average  children  in  care 80 

Annual  maintenance ^,170 

Average  expense  per  capita ^115 

In  addition  to  the  30  institutions  in  this  class  already  de- 
scribed, one  more  is  reported  by  the  state  board  of  charities. 
Having  no  response  to  urgent  requests  for  detailed  information, 
the  institution  is  here  listed,  but  is  necessarily  omitted  from  the 
statistical  tables. 

31.  Japanese  Humane  Society  Children's  Home,   1120  South 

Alvarado  Street,  Los  Angeles 

Founded  about  191 3.  Understood  to  care  only  for 
dependent  Japanese  children. 

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CHAPTER  X 
GENEI^L  CHURCH  ORPHANAGES  AND   HOMES 

THIS  group  contains  i8  institutions  for  the  care  of  orphan 
and  other  dependent  children,  under  the  control  and  man- 
agement of  individual  churches  or  denominations.  The 
explanatory  paragraphs  in  previous  chapters  largely  apply  to 
these  institutions.  Only  a  few  of  them  bear  the  title  orphanage, 
but  the  majority  are  distinct  from  the  regular  orphanages  in  little 
more  than  name.  The  work  done  is  essentially  the  same;  yet  some  I 
are  quite  different  in  work  and  methods  as  well  as  name. 

For  instance,  the  Home  of  the  Merciful  Savior  confines  its 
work  to  ailing,  sick,  and  invalid  children,  especially  of  the  poorer 
classes  of  Sacramento.  The  Maud  B.  Booth  homes  make  a 
specialty  of  the  care  of  children  whose  dependency  is  not  supposed 
to  be  permanent,  and  typify  in  this  respect  receiving  homes  rather 
than  orphanages.  The  Ellen  Stark  Ford  Home,  the  Oriental  i 
Home,  and  the  Chinese  Mission  Home  are  partially  devoted  to  " 
the  rescue  of  endangered  oriental  children,  as  well  as  to  their 
after-care  and  training.  The  Frances  DePauw  and  the  Spanish 
Mission  homes  are  similarly  related  to  the  rescue  and  after-care 
of  Spanish  and  Mexican  girls. 

There  is  considerable  variety  in  the  plants,  work,  and  char- 
acter of  these  i8  institutions,  but  in  the  main  they  are  worthy, 
well  furnished,  and  carefully  managed.  Their  worst  fault,  which  is 
also  that  of  the  orphanages  and  homes  treated  in  Chapters  IX  and 
XI,  is  a  tendency  to  hold  children  in  institutional  care  who  could 
be  given  the  better  opportunities  for  development  afforded  by  nor- 
mal family  life. 

The  aggregate  capacity  of  these  1 8  institutions  is  i  ,829.  The 
plants  are  valued  at  $1,285,500,  and  nine  of  the  homes  have  an 
aggregate  endowment  of  $558,200.  The  annual  expense  for  main- 
tenance is  $278,165.     Their  annual  income  from  public  funds  is 

94 


GENERAL  CHURCH  ORPHANAGES  AND  HOMES 

$60,935,  or  22  per  cent  of  the  annual  expense.     They  employ  193 
workers  and  have  in  care  an  average  of  1,480  children. 

As  in  the  preceding  chapters,  a  brief  description  of  each 
institution  is  given  with  a  few  principal  statistics.  For  additional 
statistical  details  the  reader  is  referred  to  the  table  at  the  close  of 
the  chapter.  The  institutions  are  listed  alphabetically:  first,  by 
denomination;  second,  by  location. 

Congregational 

1.  Mary   R.   Smith   Cottages,   Fourth  and   Cottage  Avenues, 

Oakland 

Founded,  1902.  A  special  institution  for  dependent 
girls  conducted  by  a  board  of  managers,  each  of  whom  must 
be  a  member  of  the  Congregational  church.  Twelve  modern 
cottages,  most  of  which  accommodate  eight  girls  each; 
average  cost  per  cottage,  $10,000;  with  large  central  club 
house,  gymnasium,  and  so  forth.  Thirty  acres  of  very 
valuable  land,  beautified  by  landscape  gardening.  Endow- 
ment for  each  cottage,  $25,000.  One  cottage  set  apart  for 
children  whose  stay  is  not  supposed  to  be  permanent. 
Special  educational  and  social  advantages  afforded.  No 
age  of  dismissal;  wards  cared  for  until  self-supporting  or 
married. 

Main  statistics  for  year  ending  December  31,  191 3: 

Value  of  plant $300,000 

Amount  of  endowment $300,000 

Capacity '90 

Regular  employes 10 

Average  children  in  care 75 

Annual  maintenance $22,058 

Average  expense  per  capita $294 

Hebrew 

2.  Jewish  Orphans'  Home,  Huntington  Park,  Los  Angeles 

Founded,  1908.  An  institution  for  orphan,  half- 
orphan,  and  other  dependent  Jewish  children,  maintained 
by  the  Jews  of  southern  California.  New  buildings,  fully 
modern,  well  furnished,  on  tract  exceeding  10  acres  of  land, 
suburbs  of  city. 

95 


CHILD   WELFARE    WORK    IN    CALIFORNIA 

Main  statistics  for  year  ending  December  31,  191 3: 

Value  of  plant ^100,000 

Amount  of  endowment {^35,000 

Capacity 95 

Regular  employes 15 

Average  children  in  care 80 

Annual  maintenance ^16,756 

Average  expense  per  capita jf!209 

3.  Pacific  Hebrew  Orphanage,  600  Divisidaro  Street,  San  Fran- 

cisco 

Founded,  1872.  An  institution  for  the  care  of  Hebrew 
orphans  and  half-orphans,  maintained  by  the  Jews  of  San 
Francisco  and  northern  Cahfornia.  Large  and  imposing 
three-story  frame  building,  modern,  with  annexes,  on  tract 
275  X  412  feet,  central  part  of  city. 

Main  statistics  for  year  ending  December  31,  191 3: 

Value  of  plant $150,000 

Amount  of  endowment $75,000 

Capacity 200 

Regular  employes 31 

Average  children  in  care 170 

Annual  maintenance $43,963 

Average  expense  per  capita $259 

Methodist  Episcopal 

4.  David  and  Margaret  Home,  Lordsburg 

Founded,  1910.  A  home  for  the  care  of  orphans  and 
other  needy  children,  maintained  and  managed  by  the 
Woman's  Home  Missionary  Society.  Three-story  frame 
building,  partly  modern,  about  40  rooms,  with  1 7  acres  of  land. 
To  do  general  orphanage  work  and  some  placing-out  work. 

Main  statistics  for  year  ending  June  15,  1914: 

Value  of  plant $30,000 

Capacity 70 

Regular  employes 8 

Average  children  in  care 60 

Annual  maintenance $10,107 

Average  expense  per  capita $168 

5.  Frances  DePauw  Spanish  Industrial  School,  4970  Sunset 

Boulevard,  Los  Angeles 

Founded,  1900.  A  home  and  school  for  Spanish  and 
Mexican  girls,  conducted  by  the  Woman's  Home  Missionary 

96 


Domestic  Science  Cottage 


.Main  Building 
Pacific  Hebrew  Orphanage,  San  Francisco.     (See  p.  96) 


•  "^              m 

Oriental  Hmnc  and  (Chinese  .M.  I:.  Church 


Kinderiiarten  Chiltiren 


All  Ages  at  the  Home 
Oriental  Homh,  San  Francisco.     (See  p.  98) 


GENERAL  CHURCH  ORPHANAGES  AND  HOMES 

Society  of  the  Methodist  Episcopal  church.  Three-story 
frame  building,  25  rooms,  modern,  on  tract  exceeding  one 
acre,  western  part  of  city.  Gives  special  attention  to  edu- 
cation and  vocational  training. 

Main  statistics  for  year  ending  July  i,  1914: 

Value  of  plant ^35,000 

Amount  of  endowment $3,500 

Capacity 56 

Regular  employes 6 

Average  children  in  care 55 

Annual  maintenance $6,000 

Average  expense  per  capita $109 

6.  Fred  Finch  Orphanage,  Dimond,  Oakland 

Founded,  1 89 1 .  An  institution  for  orphans  and  home- 
less children,  maintained  and  managed  by  the  Methodist 
Episcopal  church.  Three  principal  buildings,  frame,  partly 
modern,  with  12  acres  of  land,  in  the  suburb  formerly  called 
Dimond,  now  included  in  the  city  of  Oakland. 

Main  statistics  for  year  ending  June  30,  191 3: 

Value  of  plant $80,000 

Amount  of  endowment $20,000 

Capacity 150 

Regular  employes 13 

Average  children  in  care 120 

Annual  maintenance $18,567 

Average  expense  per  capita $155 

7.  Ellen  Stark  Ford  Home,  2025  Pine  Street,  San  Francisco 

Founded,  1902.  A  home  for  needy  and  endangered 
Japanese  and  Korean  children  and  adults,  maintained  by 
the  Woman's  Home  Missionary  Society  of  the  Methodist 
Episcopal  church.  Small  but  desirable  property,  central 
part  of  city.  Of  the  48  inmates  cared  for  during  the  year 
reported,  38  were  under  sixteen  years  of  age.  Of  the  other 
10,  two  were  married,  three  returned  to  Japan,  and  five 
went  out  to  employment  in  the  city. 

Main  statistics  for  year  ending  December  31,  1913: 

Value  of  plant $15,500 

Capacity 50 

Regular  employes 6 

Average  children  in  care 38 

Annual  maintenance $3,925 

Average  expense  per  capita $103 

97 


CHILD   WELFARE    WORK    IN    CALIFORNIA 

8.  McKiNLEY  Orphanage,  3841  Nineteenth  Street,  San  Francisco 

Founded,  1897.  A  home  for  orphan  and  abandoned 
children,  maintained  and  managed  by  the  Methodist  Epis- 
copal church.  Three-story  frame  building,  modern,  on 
large  city  lot,  central  part  of  city.  Fine  care  and  homelike 
influence. 

Main  statistics  for  year  ending  June  30,  191 3: 

Value  of  plant $24,000 

Amount  of  endowment ^13,000 

Capacity '  80 

Regular  employes 6 

Average  children  in  care 60 

Annual  maintenance $8,656 

Average  expense  per  capita $144 

9.  Oriental  Home,  940  Washington  Street,  San  Francisco 

Founded,  1870.  A  home  and  training  school  for 
oriental  children,  especially  Chinese  girls,  under  the  control 
and  support  of  the  Woman's  Foreign  Missionary  Society 
of  the  Methodist  Episcopal  church.  Fine  new  brick  and 
concrete  building,  occupied  November,  1911,  replacing  one 
on  same  site  destroyed  by  fire  and  earthquake  in  1906. 
Receives  boys  up  to  five  years,  girls  of  any  age.  A  few 
Chinese  infants  placed  in  Christian  Chinese  homes;  some 
Chinese  girls  trained  and  sent  out  to  domestic  service  in 
white  families. 

Main  statistics  for  year  ending  December  31,  191 3: 

Value  of  plant $50,000 

Capacity 60 

Regular  employes 2 

Average  children  in  care 37 

Annual  maintenance $6,013 

Average  expense  per  capita $163 

Presbyterian  . 

10.  Spanish  Mission  Home  and  School,  506  N.  Evergreen  Ave- 

nue, Los  Angeles 

Founded,  1884.  An  institution  for  the  care,  training, 
and  religious  education  of  Spanish  and  Mexican  girls,  con- 
ducted by  the  Board  of  Home  Missions  of  the  Presbyterian 
church.     New  building,  mission  style,  fully  modern,  occu- 

98 


GENERAL  CHURCH  ORPHANAGES  AND  HOMES 

pied  July,  1914.  The  home  is  mainly  supported  by  a  group 
of  53  Presbyterian  churches  in  southern  California.  Value 
of  plant  and  capacity  refer  to  new  property;  other  items  to 
work  done  in  old  location. 

Main  statistics  for  year  ending  May  i,  1914: 

Value  of  plant %o,ooo 

Capacity 70 

Regular  employes 3 

Average  children  in  care 22 

Annual  maintenance ^3,000 

Average  expense  per  capita ^136 

11.  Presbyterian  Orphanage  and  Farm,  San  Anselmo 

Founded,  1895.  An  institution  for  the  care  and  edu- 
cation of  orphan  and  half-orphan  children,  maintained  and 
managed  by  the  Presbyterian  church.  Three-story  frame 
building,  modern,  with  annexes,  and  school  house.  Twenty 
acres  of  land.     Excellent  homelike  conditions  and  spirit. 

Main  statistics  for  year  ending  December  31,  191 3: 

Value  of  plant ^60,000 

Capacity 130 

Regular  employes ii 

Average  children  in  care 113 

Annual  maintenance ^13,621 

Average  expense  per  capita ^121 

12.  Chinese  Mission  Home,  920  Sacramento  Street,  San  Fran- 

cisco 

Founded,  1872.  A  home  for  the  special  care  and 
training  of  oriental  children,  conducted  by  the  Board  of 
Foreign  Missions  of  the  Presbyterian  church.  Located  in 
the  Occidental  Mission  building,  three-story  and  basement 
brick  structure,  fully  modern,  on  quarter  block  of  ground, 
central  in  city.  Receives  all  needy  Chinese  children,  babies 
to  adults.  Especially  devoted  to  the  rescue  of  young  slave 
girls  shipped  from  China. 

Main  statistics  for  year  ending  October  20,  19 10: 

Value  of  plant ^75,ooo 

Capacity 60 

Regular  employes 6 

Average  children  in  care 50 

Annual  maintenance ^4,420 

Average  expense  per  capita $88 

99 


child  welfare  work  in  california 

Protestant  Episcopal 

13.  Home  of  the  Merciful  Savior,  3410  J  Street,  Sacramento 

Founded,  1907.  An  institution  for  the  care  of  sick 
and  invalid  children,  including  those  crippled  or  deformed, 
conducted  under  the  auspices  of  the  Protestant  Episcopal 
church.  Two-story  frame  dwelling,  partly  modern,  adapted, 
and  one-story  bungalow,  on  half  a  city  block.  Bungalow 
used  for  infants  and  small  children.  No  acute  contagious 
cases  admitted.  Originated  in  conviction  that  the  ailing 
children  of  the  poor,  especially  the  anemic,  deformed,  or 
crippled,  and  who  ought  not  to  be  kept  with  other  children 
in  ordinary  institutions,  should  have  separate  institutional 
care,  extra  nourishing  food,  and  up-to-date  scientific  treat- 
ment. Tendency  is  toward  a  home  wholly  devoted  to 
crippled  children.  Desire  to  enlarge  and  add  better  hospi- 
tal facilities. 

Main  statistics  for  year  ending  October  31,  191 3: 

Value  of  plant ^12,000 

Amount  of  endowment ^1,700 

Capacity 30 

Regular  employes 5 

Average  children  in  care 19 

Annual  maintenance !?5i548 

Average  expense  per  capita ^292 

14.  Maria  Kip  Orphanage,  520  Lake  Street,  San  Francisco 

Founded,  1 890.  An  institution  for  the  care  of  orphans 
and  friendless  children,  managed  by  the  Sisters  of  St. 
Savior,  under  the  auspices  of  the  Protestant  Episcopal 
church.  The  building  is  concrete  and  frame,  partly  three 
stories  and  partly  four  stories  high,  modern,  on  tract  1 50  x 
300  feet,  central  part  of  city. 

Main  statistics  for  year  ending  December  31,  191 3: 

Value  of  plant $100,000 

Amount  of  endowment $100,000 

Capacity 125 

Regular  employes 8 

Average  children  in  care 70 

Annual  maintenance $12,464 

Average  expense  per  capita $178 

100 


GENERAL  CHURCH   ORPHANAGES   AND   HOMES 

15.  Armitage  Orphanage,  San  Mateo 

Founded,  1887.  An  institution  for  orphan  and  desti- 
tute boys  under  the  auspices  of  the  Protestant  Episcopal 
church.  Main  building,  two-story  brick  structure,  modern, 
with  annexes;  also  chapel,  gymnasium,  and  superintendent's 
residence.  Twenty-five  acres  of  land.  Receives  both  de- 
pendents and  mild  delinquents.  Discipline  very  strict, 
almost  equal  to  a  regular  reform  school. 

Main  statistics  for  year  ending  January  i,  1910: 

.    Value  of  plant ^100,000 

Amount  of  endowment $10,000 

Capacity 200 

Regular  employes 18 

Average  children  in  care 165 

Annual  maintenance $23,520 

Average  expense  per  capita $143 

Note. — This  orphanage  was  closed  in  191 3.  Financial  difficulties 
are  believed  to  have  greatly  reduced  the  assets  which  in  July,  19 14,  were 
reported  to  be  about  $50,000.  It  is  rumored  that  the  institution  will  not  be 
reopened,  but  the  net  assets  will  be  used  somewhere  for  child  welfare  work. 

Salvation  Army 

16.  Boys'  and  Girls'  Industrial  Home  and  Farm,  Lytton 

Founded,  1895.  A  home  and  training  school  for 
neglected  and  abandoned  children,  conducted  by  the  Sal- 
vation Army.  Formerly  known  as  the  Golden  Gate  Or- 
phanage. Removed  from  San  Francisco  to  Lytton  in  1904. 
Main  building,  100  x  200  feet,  three  stories,  frame,  modern, 
with  12  cottages,  utility  buildings,  school  house,  and  647 
acres  of  land.  Receives  mainly  dependents,  but  accepts  a 
few  mild  delinquents.  Favorable  to  placement  in  family 
homes.  It  is  a  "children's  village,"  supported  mainly  by 
the  big  ranch.  Excellent  in  spirit  and  in  general  condi- 
tions.    (See  illustrations  facing  pages  148  and  149.) 

Main  statistics  for  year  ending  December  31,  191 3: 

Value  of  plant $75,000 

Capacity 250 

Regular  employes 29 

Average  children  in  care 236 

Annual  maintenance $57,861 

Average  expense  per  capita $245 

lOI 


child  welfare  work  in  california 

Volunteers  of  America 

17.  Maud  B.  Booth  Home,  Twenty-third  Street  and  Vermont 

Avenue,  Los  Angeles 

Founded,  1 906.  A  home  for  neglected  and  abandoned 
children,  conducted  by  the  Volunteers  of  America.  Two- 
story  frame  building,  modern,  16  rooms,  with  cottage  annex, 
on  fine  corner  lot,  western  part  of  city.  Homelike  condi- 
tions, excellent  spirit,  a  generally  worthy  institution. 
Favorable  to  placing-out  work.  (See  illustrations  facing 
pages  102  and  103.) 

Main  statistics  for  year  ending  July  i,  1914: 

Value  of  plant ^21,500 

Capacity 58 

Regular  employes 6 

Average  children  in  care 55 

Annual  maintenance $10,048 

Average  expense  per  capita ^183 

18.  Maud  B.  Booth  Home,  812  Shotwell  Street,  San  Francisco 

Founded,  1904.  A  home  for  neglected  and  abandoned 
children,  conducted  by  the  Volunteers  of  America.  Two- 
story  frame  building,  40  x  60  feet,  modern;  also  two  rented 
cottages.  Have  summer  camp  at  Mt.  Hermon,  60  acres, 
with  equipment  valued  at  ^2,500.  Receives  dependents. 
Cares  for  many  juvenile  court  cases.  More  like  a  receiving 
home  than  an  orphanage.  Especially  favorable  to  placing- 
out  work.     Excellent  care  given  in  rather  inferior  plant. 

Main  statistics  for  year  ending  January  i,  191 1 : 

Value  of  plant $27,500 

Capacity 55 

Regular  employes g 

Average  children  in  care 55 

Annual  maintenance $11,638 

Average  expense  per  capita $212 

In  addition  to  these  18  institutions,  one  new  home  of  this  class 
is  reported  by  the  state  board  of  charities.  Having  received  no 
response  to  urgent  letters  asking  detailed  information,  it  is  here 
listed  but  is  of  course  omitted  from  the  statistical  tables. 

19.  Church  Home  for  Children  of  the  Protestant  Episcopal 

Church,  Los  Angeles 

Founded,  191 3.  Commonly  known  as  the  Church 
Home  for  Children. 

102 


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Maud  B.   Booth  Home,  Los  Angeles.     (See  p.  102) 


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105 


CHAPTER  XI 
CATHOLIC  ORPHANAGES  AND  HOMES 

THE  Roman  Catholic  church  has  24  organizations  and  in- 
stitutions regularly  engaged  in  child-helping  work  in 
California.  These  include  21  orphanages  and  children's 
homes,  two  institutions  for  delinquent  girls,  and  one  society  for 
the  placement  of  children  in  family  homes,  orphanages,  and  other 
institutions. 

This  list  does  not  include  parochial  schools,  academies,  and 
colleges  not  engaged  in  charitable  work;  the  various  hospitals 
which  provide  excellent  ward  facilities  for  child  care;  or  the  settle- 
ment centers,  day  nurseries,  and  kindergartens,  which  form  im- 
portant parts  of  the  Catholic  child  welfare  work  in  the  principal 
cities  of  the  state.  Some  of  these  have  definite  mention  in  later 
chapters,  but  as  they  do  not  give  regular  care  and  assume  no  control 
of  the  children  served,  save  day  care  or  school  regulation,  they 
are  not  included  among  the  regular  child-helping  institutions. 

The  2 1  institutions  treated  in  this  chapter  compose  the  most 
important  single  group  in  the  state  giving  permanent  care  to  de- 
pendent children.  The  aggregate  capacity  of  the  75  institutions 
for  dependents  is  8,935,  of  which  this  group  provides  4,217,  which 
is  47  per  cent  of  the  whole.  These  21  institutions  possess  plants 
valued  at  $3,115,000.  Their  annual  expense  for  maintenance  is 
$432,697.  They  annually  receive  about  $208,749  from  public 
funds,  or  48  per  cent  of  their  annual  expense.  They  employ  332 
workers  and  have  in  care  an  average  of  3,290  children. 

Nearly  all  possess  exceptionally  fine  locations  and  some  of 
them  large  tracts  of  very  valuable  land.  They  are  situated  in  14 
towns  and  cities,  from  Anaheim  on  the  south  to  Ukiah  on  the 
north.  Some  have  fine  modern  buildings.  A  few  are  still  using 
old,  outgrown,  unsanitary  structures,  built  in  the  congregate  style 
of  fifty  years  ago.     All  of  them  are  managed  by  the  Sisters  or 

106 


Orphanage  Buildint 


Orphanage  Family 
St.  Catherine's  Orphanage,  Anaheim.     (See  p.  107) 


Bovs'  Dormitory 


»Jfr..  #.U.  ^^Ik'Jb 


i^Ji^J^.f* 


Boys'  Lavatory 


.M 


»^:. 


Orphanage  \  cgetablc  ('jardL-n 
St.  Catherine's  Orphanage,  Anaheim.     (See  p.  107) 


CATHOLIC    ORPHANAGES    AND    HOMES 

Brothers  of  special  Catholic  orders.  Part  of  them  do  only  or- 
phanage work,  but  the  rest  are  connected  with  parochial  schools 
or  special  academies  and  combine  the  two  lines  of  service,  as  at 
Gilroy,  San  Bernardino,  and  Santa  Cruz. 

A  brief  description  of  each  institution  follows.  A  few 
principal  statistics  are  given  here,  but  complete  details  can  be 
obtained  from  the  three  sections  of  the  table  at  the  close  of  the 
chapter. 

1 .  St.  Catherine's  Orphanage,  Anaheim 

Founded,  1894.  An  orphanage  for  boys  maintained 
and  managed  by  the  Sisters  of  the  Female  Religious  of  the 
Third  Order  of  St.  Dominic.  Fine  new  brick-veneer  build- 
ing, with  all  modern  conveniences;  frame  annexes.  Ex- 
quisitely clean  and  excellently  furnished.  Every  appear- 
ance of  first  class  institutional  care  of  children.  Sixteen 
acres  of  valuable  land,  mostly  in  orange  grove. 

Main  statistics  for  year  ending  December  31,  1913: 

Value  of  plant ^50,000 

Capacity 2CX) 

Regular  employes 17 

Average  children  in  care 155 

Annual  maintenance ^14,607 

Average  expense  per  capita $94 

2.  St.  Mary's  Academy  and  Home,  Gilroy 

Founded,  1902.  A  home  and  boarding  school  con- 
ducted by  the  Sisters  of  St.  Mary's  Convent.  Two  frame 
buildings,  each  two-story,  partly  modern,  on  tract  of  three 
acres,  edge  of  town.  Devoted  mainly  to  the  care  and 
education  of  children  of  broken  families.  Few  taken  but 
those  whose  relatives  can  pay  for  care.  Girls'  building 
accommodates  40;  boys'  building,  30. 

Main  statistics  for  year  ending  December  31,  191 3: 

Value  of  plant $10,000 

Amount  of  endowment $15,000 

Capacity 70 

Regular  employes 5 

Average  children  in  care 46 

Annual  maintenance $8,832 

Average  expense  per  capita $192 

107 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

3.  St.  Mary's  Orphanage,  Grass  Valley 

Founded,  1865.  An  orphanage  for  girls,  under  the 
management  of  the  Sisters  of  Mercy.  Three-story  brick 
main  building,  mostly  modern,  with  frame  annexes;  on 
one  city  block  of  land. 

Main  statistics  for  year  ending  June  30,  191 3: 

Value  of  plant $100,000 

Capacity 150 

Regular  employes 13 

Average  children  in  care 93 

Annual  maintenance $12,196 

Average  expense  per  capita $131 

4.  St.  Patrick's  Orphanage,  Grass  Valley 

Founded,  1865.  An  orphanage  for  boys,  under  the 
management  of  the  Sisters  of  Mercy,  Two-story  frame 
building  with  annexes,  all  lacking  modern  conveniences  and 
antiquated,  on  five  acres  of  land,  edge  of  town.  Buildings 
should  be  remodeled  and  modernized,  or  abandoned. 

Main  statistics  for  year  ending  June  30,  191 3: 

Value  of  plant $75,000 

Capacity no 

Regular  employes 9 

Average  children  in  care 70 

Annual  maintenance $9,148 

Average  expense  per  capita $131 

These  two  institutions  at  Grass  Valley — St.  Mary's  and  St. 
Patrick's — are  distinct  and  separate  in  property,  children  in  care, 
and  workers  in  charge.  But  they  are  maintained  by  the  same 
order,  and  are  managed  by  one  Mother  Superior.  The  books 
and  records  are  so  combined  that  to  obtain  separate  statistics  is 
exceedingly  difficult.  Therefore  some  of  those  given  are  estimated 
proportional  parts  of  the  whole. 

5.  Home  of  the  Guardian  Angel,  Concord  and  Washington 

Streets,  Los  Angeles 

Founded,  1894.  An  orphanage  for  both  sexes,  man- 
aged by  the  Sisters  of  Mercy.  Excellent  three-story  brick 
building,  modern  in  construction  and  conveniences.  Ten- 
acre  site  for  convent  and  orphanage,  in  west  part  of  city. 
One  of  the  best  equipped  of  the  Catholic  institutions. 

108 


CATHOLIC    ORPHANAGES    AND    HOMES 

Main  statistics  for  year  ending  July  i,  1914: 

Value  of  plant ^150,000 

Capacity 250 

Regular  employes 23 

Average  children  in  care 246 

Annual  maintenance ^24,769 

Average  expense  per  capita ^loi 

6.  Los  Angeles  Orphan  Asylum,  Boyle  and  Stephenson  Avenues, 

Los  Angeles 

Founded,  1856.  An  institution  for  dependent  and 
mildly  delinquent  girls,  managed  by  the  Sisters  of  Charity. 
Magnificent  brick  building  on  a  commanding  eminence, 
three  stories  besides  basement  and  attic,  modern;  tract  of 
twelve  acres  of  land  in  eastern  part  of  city.  Devoted  to 
the  care  and  education  of  orphan,  half-orphan,  and  aban- 
doned girls,  mostly  dependents,  although  some  wayward 
girls  are  taken.     Largest  orphanage  in  southern  California. 

Main  statistics  for  year  ending  June  30,  191 3: 

Value  of  plant ^400,000 

Capacity 500 

Regular  employes 26 

Average  children  in  care 247 

Annual  maintenance ^28,713 

Average  expense  per  capita ^116 

7.  Regina  Coeli  Orphan  Asylum,  610  Hill  Street,  Los  Angeles 

Founded,  1906.  An  orphanage  for  girls,  managed  by 
the  Sisters  of  the  Sacred  Heart,  commonly  called  the 
Missionary  Sisters.  Frame  building,  three  stories  with 
two-story  annex,  partly  modern,  on  about  a  block  of 
ground.  Fine  old  mansion,  adapted  to  present  use.  Spe- 
cial attention  to  education.  Connected  with  the  Plaza 
Church,  which  is  the  oldest  mission  church  in  the  city. 
Inmates  are  from  many  nationalities. 

Main  statistics  for  year  ending  June  30,  191 3: 

Value  of  plant $50,000 

Capacity 75 

Regular  employes 10 

Average  children  in  care 72 

Annual  maintenance $7,364 

Average  expense  per  capita $102 

109 


CHILD   WELFARE    WORK    IN    CALIFORNIA 

8.  St.  Mary's  Orphanage,  Mission  San  Jose 

Founded,  1894.  An  orphanage  for  girls,  formerly 
called  the  Josephinium,  managed  by  the  Dominican  Sisters 
who  conduct  also  two  institutions  for  boys — St.  Catherine's 
Orphanage  at  Anaheim,  and  the  Albertinium  Orphanage 
at  Ukiah.  Frame  building,  two  stories,  new  and  modern, 
with  annexes,  and  17  acres  of  land  in  prune  orchard.  De- 
voted to  the  care  and  education  of  dependent  girls.  Near- 
by is  the  mother  house  and  normal  school  of  the  order. 
Said  to  be  over  200  Sisters  of  this  order  in  California,  be- 
sides novices  now  in  school.  In  addition  to  the  three 
child-caring  institutions,  they  are  connected  with  many 
schools  and  colleges. 

Main  statistics  for  year  ending  July  i,  1914: 

Value  of  plant $40,000 

Capacity 160 

Regular  employes 15 

Average  children  in  care 158 

Annual  maintenance $16,117 

Average  expense  per  capita $102 

9.  St.  Joseph's  Agricultural  Institute,  Rutherford 

Founded,  1902.  A  vocational  training  school  for 
boys,  patterned  mainly  after  the  Catholic  Protectory's 
institution  at  Lincolndale,  New  York.  Buildings  incom- 
plete and  added  to  by  the  use  of  tents.  May  to  November. 
Ranch  contains  1,021  acres  of  fine  land  in  high  cultivation. 
Over  100  acres  of  vineyard;  25  acres  in  prune  orchard; 
smaller  tracts  in  peaches,  apricots,  almonds,  and  so  forth. 
The  main  part  of  the  land  in  crops  and  pasture.  Large 
dairy  herd  and  good  creamery.  The  ranch  itself  is  equiv- 
alent to  a  large  endowment,  while  affording  facilities  for 
vocational  training  in  all  agricultural  and  horticultural  lines. 
Receives  dependent  or  slightly  delinquent  boys  twelve  to 
fifteen  years  of  age  who  desire  an  agricultural  education. 
The  institution  aims  "to  establish  a  regular  agricultural 
college  for  boys  and  young  men." 

1 10 


CATHOLIC    ORPHANAGES    AND    HOMES 

Main  statistics  for  year  ending  October  31,  19 10: 

Value  of  plant ^50,000 

Capacity 100 

Regular  employes 10 

Average  children  in  care 100 

Annual  maintenance ^12,000 

Average  expense  per  capita $120 

10.  Stanford-Lathrop  Memorial  Home,  N  and  Eighth  Streets, 

Sacramento 

Founded,  1895.  A  home  for  dependent  girls,  con- 
ducted by  the  Sisters  of  Mercy.  Three-story  brick  building, 
about  30  rooms,  modern,  formerly  a  residence  of  the  late  Sen- 
ator Leland  Stanford,  on  a  quarter  block  of  land,  centrally 
located  in  city.  Receives  only  specially  selected  depend- 
ents.    Extra  good  accommodations  and  care  of  inmates. 

Main  statistics  for  year  ending  January  i,  191 1 : 

Value  of  plant ^25,000 

Amount  of  endowment ^75,000 

Capacity 47 

Regular  employes 5 

Average  children  in  care 41 

Annual  maintenance $7, 100 

Average  expense  per  capita |5i73 

11.  St.  Vincent's  Orphan  Asylum,  St.  Vincents 

Founded,  1855.  An  orphanage  for  boys,  conducted 
by  the  Brothers  of  the  Christian  Schools.  Located  in 
Marin  County,  a  few  miles  from  San  Rafael,  with  a  railroad 
station  and  a  post  office  of  its  own.  Frame  two-story  main 
building  about  130  feet  front,  with  two  wings  extending 
back  340  feet;  various  annexes  and  utility  buildings. 
Partly  modern  in  conveniences,  but  in  part  out-of-date  and 
unsuitable  for  use.  Foundation  of  new  buildings  laid,  but 
superstructures  delayed.  The  property  includes  1,800  acres 
of  land,  300  in  cultivation.     Cares  mainly  for  dependents. 

Main  statistics  for  year  ending  June  30,  191 3: 

Value  of  plant $200,000 

Capacity 530 

Regular  employes 36 

Average  children  in  care 480 

Annual  maintenance $60, 116 

Average  expense  per  capita ^125 

1 1 1 


CHILD   WELFARE    WORK    IN    CALIFORNIA 

12.  St.  Catherine's  Orphan  Asylum,  Fifth  and  E  Streets,  San 

Bernardino 

Founded,  1894.  ■^ri  orphanage  for  girls,  conducted 
by  the  Sisters  of  the  Immaculate  Heart.  Two-story  brick 
building,  with  one-story  annexes,  and  connected  with 
large  parochial  schools;  on  full  block  of  land,  central  in 
city.     About  one-third  of  children  cared  for  are  Mexican. 

Main  statistics  for  year  ending  June  30,  1913: 

Value  of  plant $50,000 

Capacity 100 

Regular  employes 7 

Average  children  in  care 50 

Annual  maintenance $6,363 

Average  expense  per  capita $127 

13.  Mount  St.  Joseph's  Infant  Orphan  Asylum,  N  and  Bay 

View  Streets,  San  Francisco 

Founded,  1865.  An  orphanage  for  infants  and  small 
children,  conducted  by  the  Sisters  of  Charity.  Three- 
story  frame  building  with  several  annexes  and  20  acres  of 
land.  Building  rambling,  inconvenient,  and  old;  should  be 
replaced  with  a  modern  structure.  Receives  babies  and 
children  of  both  sexes  up  to  five  years. 

Main  statistics  for  year  ending  June  30,  191 3: 

Value  of  plant $175,000 

Amount  of  endowment $5,000 

Capacity 380 

Regular  employes 27 

Average  children  in  care 280 

Annual  maintenance $43,467 

Average  expense  per  capita $155 

14.  Roman  Catholic  Orphan  Asylum,  Bay  View  and  Newhall 

Streets,  San  Francisco 

Founded,  1852.  An  institution  for  orphan,  half- 
orphan,  and  abandoned  girls  six  to  fourteen  years  of  age. 
First  Catholic  orphanage  in  California.  Conducted  by  the 
Sisters  of  Charity.  Original  building  destroyed  by  fire  in 
October,  1910.  Fine  three-story,  steel-frame,  brick-filled 
building  with  all  modern  conveniences  has  taken  its  place. 
Site  consists  of  52  acres  of  very  valuable  land.  Some  en- 
dowment,   amount    not    disclosed.     The    six    illustrative 

1 12 


New  Building.     Capacity,  500 


Orphan  Asylum  Dining  Hall 
Roman  Catholic  Orphan  Asylum,  San  Francisco.     (Seep.  112) 


One  of  the  School  Rooms 


Congregate  Lavatory 
Roman  Catholic  Orphan  Asylum,  San  Francisco.     (See  p.  112) 


CATHOLIC  ORPHANAGES  AND  HOMES 

pictures  of  this  institution  will  have  special  interest  as 
showing  the  present  plant  and  work  of  the  first  Catholic 
orphanage  on  the  Pacific  coast,  and  as  representing  the 
latest  ideas  of  those  who  advocate  the  care  of  dependent 
children  in  congregate  institutions.  It  is  probable  that  the 
valuation  of  the  plant,  as  given  below,  should  be  increased 
by  at  least  ^100,000. 

Main  statistics  for  year  ending  June  30  191 3: 

Value  of  plant ^400,000 

Capacity 500 

Regular  employes 33 

Average  children  in  care 390 

Annual  maintenance ^44,149 

Average  expense  per  capita $113 

15.  St.  Francis   Girls'   Directory,  Buena  Vista  and  Morrell 

Streets,  San  Francisco 

Founded,  1888.  An  institution  for  the  care  of  or- 
phan, half-orphan,  and  neglected  children,  conducted  by 
Sisters  of  the  Roman  Catholic  church.  Three-story  brick  and 
frame  building,  40  rooms,  modern;  on  small  tract,  central  in 
city.  The  institution  has  also  a  farm  of  50  acres,  across  San 
Francisco  Bay,  at  San  Leandro.  Cares  mainly  for  girls  but 
takes  a  few  boys,  generally  to  escape  dividing  families. 

Main  statistics  for  year  ending  June  30,  1913: 

Value  of  plant $125,000 

Capacity 125 

Regular  employes 10 

Average  children  in  care 104 

Annual  maintenance $10,400 

Average  expense  per  capita $100 

Note. — Directory  destroyed  by  fire  September,  191 5.    It  is  rumored 
that  institution  will  not  be  rebuilt. 

16.  St.  Francis  Technical  School,  Cough  and  Geary  Streets, 

San  Francisco 

Founded,  1886.  Vocational  training  school,  con- 
ducted by  the  Sisters  of  Charity.  Final  one  in  series  of 
three  orphanages  conducted  in  the  same  city  by  these 
Sisters.  First,  Mount  St.  Joseph's  Infant  Orphan  Asylum, 
caring  for  infants  and  children  up  to  five  years;  second,  the 

113 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

Roman  Catholic  Orphan  Asylum,  caring  for  girls  six  to 
fourteen  years;  third,  St.  Francis  Technical  School,  caring 
for  selected  girls  fourteen  to  eighteen  years.  Fine  three- 
story  brick  and  stone  building  on  half  city  block  of  land 
in  choice  part  of  city.  The  work  in  which  the  carefully 
chosen  girls  are  trained  is  principally  embroidery  and  high 
class  dress  and  garment  making.  First  class  artists  in 
these  lines  are  employed  as  instructors  and  leaders.  In- 
stitution patronized  by  many  of  the  wealthiest  residents. 
The  Mother  Superior  said:  "The  leading  ladies  of  the  city 
are  among  our  regular  customers,  and  have  no  hesitation  in 
giving  large  orders  for  valuable  dresses."  Graduates  of 
the  school  command  fine  positions  and  large  salaries. 
About  20  girls  graduate  each  year.  The  Sisters  conduct 
similar  institutions  at  Albany,  Baltimore,  Washington,  and 
New  Orleans. 

Main  statistics  for  year  ending  January  i,  191 1 : 

Value  of  plant ^200,000 

Capacity 125 

Regular  employes 15 

Average  children  in  care 94 

Annual  maintenance ^30,600 

Average  expense  per  capita ^326 

17.  Youths'  Directory,  720  Church  Street,  San  Francisco 

Founded,  1874.  An  institution  "to  harbor,  protect, 
and  properly  educate  destitute  children,  irrespective  of 
creed  and  color,"  under  the  auspices  of  St.  Joseph's  Union 
of  the  Roman  Catholic  church.  Large  four-story  stone 
building  with  all  modern  conveniences,  on  a  half  block  of 
ground,  with  a  magnificent  view  of  the  city.  One  of  the 
finest  and  best  equipped  buildings  devoted  to  charitable 
work  to  be  found  in  the  country.  The  Directory  is  notable 
for  the  fact  that  while  a  costly  institution  is  maintained  and 
a  very  large  work  done,  it  announces  that  it  "does  not 
now  receive,  and  it  never  has  received,  a  solitary  cent  of 
city,  county,  or  state  aid.  An  appreciative  and  generous 
public  has  sustained  it  from  the  beginning  by  voluntary 
contributions."  Its  plan  is  to  "seek  out  neglected,  abused 
and  abandoned  children,  and  take  them  from  corrupting 

114 


CATHOLIC   ORPHANAGES    AND    HOMES 

environments,  before  the  policeman  has  any  right  to  lay  a 
hand  on  them."     In  its  direct  work  it  confines  its  efforts  to 
the  rescue,  guidance,  education,  and  placement  of  boys, 
and  usually  takes  none  below  the  age  of  seven  years. 
Main  statistics  for  year  ending  March  i,  1910: 

Value  of  plant ^175,000 

Capacity 100 

Regular  employes 10 

Average  children  in  care 86 

Annual  maintenance ^23,000 

Average  expense  per  capita ^267 

18.  St.  Vincent's  Institution,  De  la  Vina  Street,  Santa  Barbara 

Founded,  1858.  An  institution  for  orphan  and  aban- 
doned girls,  conducted  by  the  Sisters  of  Charity.  Three- 
story  and  high  basement  brick  building,  partly  modern,  on 
full  block  of  ground,  central  in  city.  Receives  mainly  de- 
pendents, but  accepts  a  few  delinquents. 

Main  statistics  for  year  ending  January  i,  1914: 

Value  of  plant i?55.ooo 

Capacity no 

Regular  employes 14 

Average  children  in  care 80 

Annual  maintenance ^11,751 

Average  expense  per  capita ^'47 

19.  Santa  Cruz  Female  Orphan  Asylum,  Mission  Hill,  Santa 

Cruz 

Founded,  1862.  An  institution  for  the  care  and  edu- 
cation of  needy  girls,  conducted  by  the  Sisters  of  Charity. 
Two  large  three-story  frame  buildings,  modern,  on  full  city 
block,  central  in  city.  Gives  special  attention  to  education, 
and  conducts  large  parochial  school  in  addition  to  orphanage. 
Institution  neat,  orderly,  well  furnished;  one  of  the  best  of 
the  kind  in  the  state. 

Main  statistics  for  year  ending  December  31,  1913: 

Value  of  plant ?75.ooo 

Capacity 130 

Regular  employes 14 

Average  children  in  care 96 

Annual  maintenance ^10,280 

Average  expense  per  capita ^107 

115 


CHILD   WELFARE    WORK    IN    CALIFORNIA 

20.  Albertinium  Orphanage,  Ukiah 

Founded,  1904.  An  institution  for  the  care  of  or- 
phan, half-orphan,  and  abandoned  boys.  Conducted  by 
the  Sisters  of  the  Order  of  St.  Dominic.  Good  two-story 
frame  building,  52  x  140  feet,  on  full  city  block.  Also 
has  20  acres  at  edge  of  town.  Excellent  conditions  and 
appearance  of  first  class  work. 

Main  statistics  for  year  ending  June  30,  1913: 

Value  of  plant ^60,000 

Capacity ,3^ 

Regular  employes ,2 

Average  children  in  care [      [  13c 

Annual  maintenance $21,110 

Average  expense  per  capita ^155 

21.  St.  Francis'  Orphanage,  Watsonville 

Founded,  1869.  An  institution  for  the  care  and  edu- 
cation of  orphan  and  abandoned  boys.  Conducted  by  the 
Franciscan  Fathers.  Formerly  known  as  the  Pajaro  Valley 
Orphan  Asylum.  The  original  plant,  consisting  of  a  group 
of  seven  frame  buildings,  one  of  which  was  the  orphanage 
church,  after  forty-six  years  of  service  is  being  rapidly  re- 
placed by  a  modern  cottage  village.  Part  of  the  old  build- 
ings are  retained  for  use  as  vocational  training  shops. 
The  new  plant,  which  will  be  practically  complete  by  the 
close  of  the  year,  is  thus  mentioned  by  the  superintendent 
in  a  personal  letter  under  date  of  April  19,  191 5:  "Eight 
cottages  are  now  completed.  The  administration  building, 
the  school,  and  the  service  building,  are  all  under  construc- 
tion. When  these  three  are  completed,  we  shall  arrange 
all  the  shops  in  the  old  buildings,  and  shall  use  them  for 
manual  training." 

Our  illustrations  facing  pages  i  i6and  1 17  show  the  front 
of  the  old  plant  and  a  birdseye  view  from  architectural  draw- 
ings of  the  new  one.  This  change,  now  practically  complete, 
of  an  old-fashioned  congregate  orphanage  into  a  modern  cot- 
tage institution  is  most  remarkable.  It  involved  first  the 
evolution  of  sentiment  and  conviction,  then  the  determi- 
nation to  raise  over  a  quarter  of  a  million  of  dollars  as  a 
116 


Old  Plant — Now  Being  Replaced 


l^ajaro  \'alley  Orphanage  Band 
St.  Francis'  Orphanage,  Watsonville.     (Seep.  ii6) 


CATHOLIC  ORPHANAGES  AND  HOMES 

building  fund.  The  new  St.  Francis'  Orphanage  will  long 
stand  as  a  monument  to  the  devotion  and  zeal  of  the  Fathers 
in  charge,  the  loyalty  of  their  financial  supporters,  and  the 
appreciation  of  all  for  modern  ideals  and  methods. 

A  picture  of  the  orphanage  band  is  given  among  the 
illustrations  (facing  page  1 16).  That  it  is  esteemed  to  be  an 
important  factor  in  the  training  given  at  this  institution  is 
shown  by  these  words  of  Father  Zettel:  "That  the  band 
is  a  great  educational  factor  has  been  amply  proven,  and 
for  that  reason  we  always  maintain  it  on  a  high  plane  of 
efficiency." 

The  spirit  and  purpose  of  the  management  are  shown 
in  the  following  quotation  from  a  letter  of  Father  Flavian 
Zettel,  the  superintendent : 

The  idea!  training  place  for  children  is  the  individual  home, 
where  children  are  brought  up  under  the  care  and  supervision  of 
father  and  mother.  When  they  are  deprived  of  this  ideal,  be  it 
through  death,  or  through  the  unnatural  conduct  of  parents,  or 
any  other  cause,  and  children  can  not  be  brought  up  under  the 
parental  roof  and  are  sent  to  an  institution,  that  institution  will 
achieve  the  best  results  which  is  most  homelike.  Now,  in  the 
cottage  system,  the  children  can  point  to  their  cottages  as  their 
homes.  We  feel  that  there  are  also  many  other  advantages  in 
the  cottage  system.  Our  purpose  is  not  to  make  this  the  most 
expensive  institution  of  its  kind,  but  at  least  one  that  is  a  good 
exemplification  of  modern  ideas. 

Up  to  recent  years  this  orphanage  was  a  conspicuous 
example  of  conservatism  and  the  old  congregate  method  of 
institutional  care.  For  this  reason  it  is  to  be  the  more  con- 
gratulated on  its  present  spirit  and  splendid  plans.  The 
institution  possesses  over  300  acres  of  very  valuable  land, 
of  which  100  acres  are  in  apple  orchard,  valued  above 
^1,000  per  acre.  Because  productive  of  a  large  income, 
these  lands  are  the  equivalent  of  considerable  endowment, 
but  at  a  low  valuation  are  included  as  a  part  of  the  plant. 
The  statistics  given  below  and  in  the  table  do  not  include 
the  new  buildings,  on  which  no  accurate  valuations  are 
117 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

available,  and  which  undoubtedly  would  raise  the  total  to 
above  $500,000. 

Main  statistics  for  year  ending  December  31,  1913: 

Value  of  plant 5^350,000 

Capacity 325 

Regular  employes 21 

Average  children  in  care 267 

Annual  maintenance $30,615 

Average  expense  per  capita ^115 


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CHAPTER   XII 

INSTITUTIONS    FOR    COMBINED    CARE    OF    ADULTS 
AND   CHILDREN 

THE  rescue  homes  of  California  combine  the  work  of  caring 
for  endangered  girls  and  unfortunate  women  with  that  of 
the  care  of  babies  and  other  children.  The  care  of  chil- 
dren, other  than  babies  in  their  mothers'  arms,  has  been  developed 
to  a  considerable  extent  in  these  institutions.  Two  or  three  of 
them  could  quite  properly  be  listed  among  the  regular  children's 
homes,  as  their  work  is  related  about  as  much  to  the  care  of  chil- 
dren as  to  the  relief  of  those  older. 

Because  of  their  peculiar  work  these  six  institutions  are 
listed  and  tabulated  by  themselves;  and  on  account  of  their  care 
of  many  dependent  children  they  are  naturally  considered  imme- 
diately after  the  regular  institutions  for  this  class,  indeed  as  a  part 
of  them. 

It  is  the  general  policy  of  these  homes  to  recommend  to  the 
mothers,  most  of  whom  are  unmarried,  the  rearing  of  their  own 
infants  whenever  it  is  possible.  Some  mothers  are  unable  to  do 
this  and  voluntarily  give  them  up  for  adoption.  Others  go  out  to 
service,  leaving  their  babies  to  be  cared  for  at  the  home  and  paying 
such  sums  as  they  are  able  for  the  board  of  the  children.  Many 
babies  thus  left  to  be  boarded  are  abandoned  by  their  mothers, 
and  after  a  legal  period  of  waiting  are  given  into  the  care  of  child- 
placing  agencies  for  adoption  in  approved  families. 

In  addition  to  those  thus  retained  as  abandoned  babies  or 
boarders,  these  homes  care  for  many  other  children.  Some  are 
endangered  girls  in  their  critical  years  from  twelve  to  sixteen; 
others  are  the  distressed  children  of  deserted  wives,  who  are  home- 
less and  destitute.  There  are  so  many  dependent  children,  and 
the  pressure  is  so  great,  that  most  of  these  homes  become  reposi- 
tories for  a  general  collection  of  waifs  and  strays,  perhaps  without 
originally  intending  to  undertake  such  work. 

122 


Malernity  and  Children's  Home 
Separate  Building  for  Children  on  the  Left 


Convalescent  Ward,  Maternity  Building 
Truelove  Home  (Salvation  Army),  Los  Angeles.     (See  p.   123) 


A  Truelove  Baby  Let  Me  Lo\  e  ^  (ai 

Samples  of  Breast-Fed  Babies  at  the  Truelove  Home,  Los  Angeles.     (See  p.  123) 


Florence  Crittenton   Home,  San  Jose.     (See  p.  125) 


INSTITUTIONS    FOR   COMBINED    CARE 

The  aggregate  capacity  of  the  six  institutions  is  250 — 140 
adults  and  no  children.  The  plants  are  valued  at  ^116,500, 
Their  annual  expense  for  maintenance  is  ^27,005.  Only  ^5,1 19  of 
this,  or  19  per  cent,  is  from  public  funds.  They  employ  23  workers 
and  average  in  care  171 — 98  adults  and  73  children.  As  many  of 
those  classed  as  adults  are  really  immature  girls,  the  entire  work 
can  be  added  to  that  for  dependent  children  with  very  little  varia- 
tion from  strict  equity. 

As  in  previous  chapters,  a  brief  outline  of  each  institution  is 
given  with  the  principal  statistics.  The  table  at  the  close  of  the 
chapter  gives  additional  points  and  opportunity  for  comparison. 

1.  Florence  Crittenton  Home,  1632  Santee  Street,  Los  Angeles 

Founded  in  1894  as  the  Florence  Home;  admitted 
fully  to  the  Crittenton  group  in  1909.  A  rescue  home 
devoted  to  the  care  of  unfortunate  girls  and  their  babies, 
and  of  delinquent  girls  from  the  juvenile  court;  conducted 
by  a  nonsectarian  board  of  managers.  One  of  the  84  homes 
in  the  national  chain  under  this  title.  Two-story  frame 
residence  with  additions,  partly  modern,  on  good  corner  lot. 
Co-operates  in  necessary  placing-out  work  with  the  Chil- 
dren's Home  Society  of  California. 

Main  statistics  for  year  ending  December  31,  1913: 

Value  of  plant ^20,000 

Capacity — adults,  20;  children,  20 40 

Regular  employes 5 

Average  in  care — adults,  15;  children,  15     ....  30 

Annual  maintenance $6,219 

Average  expense  per  capita ^207 

2.  Truelove  Home,  2670  North  Griffm  Avenue,  Los  Angeles 

Founded,  1899.  A  home  for  the  rescue  and  care  of 
endangered  and  unfortunate  girls  and  the  care  of  babies 
and  other  children,  conducted  by  the  Salvation  Army. 
Sometimes  called  the  Salvation  Army  Rescue  Home.  Two- 
story  frame  buildings,  about  40  rooms,  modern,  on  tract 
150  X  300  feet,  good  location.  In  addition  to  unfortunate 
girls  and  women,  receives  children  from  broken  families  and 
delinquent  girls  from  the  juvenile  courts.  (See  illustrations 
facing  pages  122  and  123.) 

123 


CHILD   WELFARE    WORK    IN    CALIFORNIA 

Main  statistics  for  year  ending  December  31,  1913: 

Value  of  plant ^25,000 

Capacity — adults,  30;  children,  20 50 

Regular  employes 5 

Average  in  care — adults,  25;  children,  15     ...      .  40 

Annual  maintenance $5,929 

Average  expense  per  capita I148 

3.  Beulah  Home,  Beulah  Heights,  Oakland 

Founded,  1890.  A  rescue  home  for  the  uplift  of  un- 
fortunate girls  and  the  care  of  their  children,  conducted  by 
the  Salvation  Army.  Three-story  frame  building,  about 
20  rooms,  partly  modern,  on  tract  200  x  300  feet,  east  part 
of  Oakland.  In  addition  to  adult  applicants  receives  chil- 
dren under  five  years  of  age  from  the  juvenile  court. 

Main  statistics  for  year  ending  September  i,  191 4: 

Value  of  plant $10,000 

Capacity — adults,  35;  children,  20 55 

Regular  employes 5 

Average  in  care — adults,  22;  children,  19     ...      .  41 

Annual  maintenance $4,382 

Average  expense  per  capita $107 

4.  Peniel  Rescue  Home,  1510  Third  Street,  Sacramento 

Founded,  1903.  An  institution  for  the  care  of  erring 
girls  and  their  children  and  for  any  woman  needing  help, 
conducted  by  a  nonsectarian  board  of  managers.  Two-story 
residence,  finely  shaded  and  adorned.  Formerly  was  the 
Crocker  Mansion.  Receives  girls  twelve  to  fifteen  years  of  age 
from  the  juvenile  court.  Holds  very  strictly  to  the  idea  of  the 
mother  permanently  caring  for  her  child  whenever  possible. 

Main  statistics  for  year  ending  March  i,  1910: 

Value  of  plant $25,000 

Capacity — adults,  20;  children,  15 35 

Regular  employes 3 

Average  in  care — adults,  15;  children,  10     ...      .  25 

Annual  maintenance $3,793 

Average  expense  per  capita     ........  $152 

5.  Florence   Crittenton   Home,   376  Twentieth  Avenue,   San 

Francisco 

Founded,  1902.  A  home  for  the  care  of  unfortunate 
girls  and  their  children,  conducted  by  a  nonsectarian  board 

124 


INSTITUTIONS    FOR   COMBINED   CARE 

of  managers.     One  of  the  84  homes  in  the  national  chain 

under  this  title.     Two-story  and  attic  frame  building  with 

modern  conveniences,   but  property  old  and  inadequate. 

The  children  served  are  largely  in  their  mothers'  arms  or 

abandoned  by  them  at   the  home.     Of  the  63   so-called 

adults  in  care  during  1913,  there  were  29  between  fourteen 

and  eighteen  years  of  age.     In  nativity  they  were:  foreign 

born,  13;  American  born,  50.     In  religion  22  professed  to 

be  Catholic  and  41  were  non-Catholic. 

Main  statistics  for  year  ending  December  31,  191 3: 

Value  of  plant $14,500 

Capacity — adults,  15;  children,  28 43 

Regular  employes 3 

Average  in  care — adults,  16;  children,  12     ...      .  28 

Annual  maintenance $4,844 

Average  expense  per  capita ^173 

6.  Florence  Crittenton  Home,  942  Park  Avenue,  San  Jose 

Founded,  1909.  A  home  for  the  rescue  and  reclama- 
tion of  unfortunate  girls,  and  the  care  of  their  children,  con- 
ducted by  a  nonsectarian  board  of  managers.  One  of  the 
84  homes  in  the  national  chain  under  this  title.  Two- 
story  frame  building,  modern,  about  20  rooms,  on  five-acre 
tract,  good  section  of  city.  Some  delinquent  girls  taken 
from  juvenile  court.  An  excellent  institution.  (See  illus- 
tration facing  page  123.) 

Main  statistics  for  year  ending  July  i,  1914: 

Value  of  plant $22,000 

Capacity — adults,  20;  children,  7 27 

Regular  employes 2 

Average  in  care — adults,  5;  children,  2 7 

Annual  maintenance $1,838 

Average  expense  per  capita $263 

In  addition  to  the  six  institutions  for  this  work  described  and 
tabulated,  a  new  one  is  reported  by  the  state  board  of  charities. 
Having  no  response  to  urgent  letters  of  inquiry,  it  is  here  listed, 
but  for  want  of  detailed  statistics  is  omitted  from  the  tables. 

7.  Hillcrest  Rest  Cottage,  Huntington  Drive,  Bairdstown 

Founded  about  1913.  A  rescue  home  for  unfortunate 
girls,  conducted  by  the  religious  denomination  known  as  the 
Nazarenes. 

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PART  THREE 
SUMMARIES  AND  AUXILIARY  ORGANIZATIONS 


The  public  interest  will  be  best  subserved  and  the  welfare  of  dependent 
children  best  secured,  when  each  of  our  child-saving  organizations  performs 
only  the  work  it  is  specifically  organized  to  do,  in  cordial  and  systematic 
co-operation  with  all  other  agencies  and  institutions.— Frank  D.  Witherbee. 

Extreme  views  of  the  abnormality  of  crime  may  well  make  us  pause 
when  we  reflect  on  its  relativity.  Socrates  and  Jesus  were  criminals  accord- 
ing to  the  legal  standards  of  their  day.  We  confine  and  kill  those  who  in 
the  days  of  Abraham  and  Ulysses  or  in  positions  of  power  and  influence 
would  be  heroes.  Of  the  ten  chief  crimes  of  the  Hebrews  of  old,  only  one 
is  now  a  crime.  Many  of  the  knights  and  barons  of  the  middle  ages  were 
brigands,  but  were  not  then  outlawed  by  public  sentiment  as  abnormal. 
There  is  deep  and  wide-spread  feeling  in  every  community  that  in  extreme 
hunger  all  things  belong  to  all.  The  thought  of  killing  our  own  fathers 
or  children  is  monstrous,  but  we  kill  the  fathers  and  children  of  other  people 
with  impunity  in  war.  Many  of  our  greatest  criminals  would  have  been 
normal  and  perhaps  eminently  useful  citizens  in  other  ages  and  places. 
Judged  by  severe  and  inner  standards  of  morals,  most  of  us  have  committed 
every  crime.  .  .  .  One  thing  is  certain,  that  the  great  body  of  crime 
is  not  to  be  essentially  reduced  by  criminal  codes,  however  skillfully  drawn, 
but  only  by  bettering  the  individual  and  social  conditions  of  the  community 
at  large. 

The  new  penology  is  no  longer  actuated  by  vengeance,  and  does  not 
look  at  the  moral  gravity  of  the  offense,  but  solely  at  the  protection  of 
society,  which  must,  not  so  much  punish,  as  protect  itself. — G.  Stanley  Hall. 

At  present  the  care  of  foundlings  varies  considerable  in  different 
countries.  Methods  in  France  have  undergone  many  changes.  .  .  . 
By  the  law  of  1874  every  child  under  two  years  of  age  which  is  taken  care 
of  for  hire  outside  the  home  of  its  parents  becomes  an  object  of  public 
guardianship.  Nevertheless,  the  actual  work  and  expense  of  caring  for 
foundlings  are  to  a  large  extent  undertaken  by  religious  communities  and 
private  associations,  both  in  asylums  and  in  families.  In  Germany  the 
asylum  system  seems  never  to  have  been  as  common  as  in  Italy  and  in 
France.  Today  that  country  has  no  foundling  asylum  in  the  strict  sense 
of  the  term.  The  prevailing  practice  is  to  place  the  infant  temporarily  in 
an  institution,  usually  an  orphan  asylum,  and  then  to  give  it  into  the  charge 
of  a  family.  Both  the  public  authorities  and  the  religious  communities 
follow  this  system.  Since  the  days  of  Joseph  II,  foundling  asylums  have 
been  rather  general  in  Austria.  .  .  .  The  asylum  in  Vienna  is  the 
largest  in  the  world,  having  under  its  care  either  within  or  without  its  doors 
more  than  30,000  children  every  year.  Of  the  seventy  odd  thousand  infants 
received  during  ten  years  only  902  were  legitimate.  In  proportion  to  its 
population,  Italy  exceeds  all  other  countries  in  the  number  of  institutions 
which  are  exclusively  devoted  to  the  care  of  foundlings.  The  number  in 
1898  was  113,  and  the  number  of  children  cared  for  100,418.  Most  of 
these,  however,  were  placed  out  in  families,  although  the  famous  asylum 
of  Florence  (founded  13 16)  sheltered  more  than  6,500  in  the  year  1899. 
The  revolving  crib  has  all  but  disappeared,  owing  to  the  conviction  of 
competent  authorities  that  it  increased  both  illegitimacy  and  child-aban- 
donment.— Catholic  Encyclopedia.     Article  on  Foundling  Asylums. 


CHAPTER   XIII 

SUMMARY   FOR   PRIVATE   CHILD-CARING 
INSTITUTIONS 

SOME  very  interesting  facts  are  brought  out  in  the  tabulated 
summary  of  the  79  child-caring  institutions  under  private 
management  which  is  found  at  the  close  of  this  chapter. 
Four  of  them  care  mainly  for  delinquents  and  75  are  devoted  almost 
wholly  to  the  care  of  dependents.  A  number  of  suggestive  totals  and 
averages  will  be  reviewed  and  repeated  for  the  sake  of  emphasis. 

The  summary  table  divides  these  institutions  into  sections 
based  on  religious  affiliation  and  type  of  housing.  There  are  21 
non-Catholic  institutions  classed  as  cottage  in  type.  It  should  be 
said  that  several  so  classed  are  small,  with  inferior  accommoda- 
tions, and  not  distinguished  for  "care  and  spirit  in  imitation 
of  ordinary  family  life."  Yet  they  are  so  much  below  the  number 
limit  of  the  congregate  institutions,  and  the  structures  occupied 
are  so  clearly  cottage,  that  it  seems  best  to  so  classify  them.  Not 
more  than  1 5  of  the  21  institutions  fully  exemplify  the  definition  of 
a  cottage  institution  as  given  in  the  second  chapter. 

The  congregate  institutions  are  divided  into  two  sections. 
The  first  contains  35  non-Catholic  and  the  second  23  Catholic 
institutions.  At  the  time  of  the  study  all  of  the  Catholic  institu- 
tions were  distinctly  congregate  in  type,  but  the  St.  Francis' 
Orphanage  at  Watsonville  is  now  (1915)  erecting  a  fine  cottage 
plant,  and  others  have  similar  changes  under  consideration. 

The  21  institutions  of  the  cottage  section  have  invested  in 
their  plants  an  aggregate  of  ^975,700.  Their  combined  capacity 
is  1,505,  giving  an  average  cost  per  bed  of  $648.  Could  the  small 
institutions  not  fully  cottage  in  type  be  eliminated,  the  average 
cost  of  plant  per  bed  for  the  remainder  would  be  about  ^1,000. 
There  is  an  aggregate  endowment  of  ^362,300,  making  a  total 
investment  of  $1,338,000,  or  an  average  of  $63,714  per  institution. 

The  annual  cost  of  maintenance  of  the  21  cottage  institu- 

131 


CHILD   WELFARE    WORK    IN    CALIFORNIA 

tions  is  $261,369,  or  an  average  of  $212  per  capita.  The  salaries 
aggregate  $62,932,  or  an  average  of  $5 1  per  capita.  The  income 
from  public  funds  is  $64,201,  or  $52  per  capita,  and  25  per  cent  of 
the  cost  of  maintenance.  They  have  170  regular  employes,  with  an 
average  of  i  ,230  children  in  care,  which  is  7.2  children  per  employe. 

The  total  number  of  children  in  care  for  the  year  is  2,410. 
Their  relative  disposition  is  indicated  by  these  figures:  placed  in 
family  homes,  164;  returned  to  kin  or  friends,  705;  died,  11;  dis- 
posed of  otherwise,  323;  in  institutions  at  close  of  year,  1,207. 

Passing  to  the  section  containing  the  35  non-Catholic  con- 
gregate institutions,  we  find  invested  in  their  plants  a  total  of 
$2,022,000.  The  combined  capacity  is  3,343,  and  the  average  cost 
of  plant  per  bed,  $605.  Many  possess  large  investments,  not  all 
income  producing,  but  all  counted  as  endowment,  and  aggregating 
$1,332,500.  The  total  value  of  property  is  $3,354,500,  or  an 
average  of  $95,843  per  institution. 

In  this  section  the  annual  cost  of  maintenance  is  $450,242, 
or  an  average  of  $182  per  capita.  The  salaries  aggregate  $145,010, 
or  $59  per  capita.  The  income  from  public  funds  is  $107,398,  or 
$43  per  capita  and  24  per  cent  of  the  current  expense.  They  have 
331  regular  employes,  with  an  average  of  2,478  children  in  care, 
which  is  7.5  children  for  each  worker. 

The  total  number  in  care  during  the  year  is  4,539.  The 
proportions  of  the  various  items  of  disposition  are  very  similar  to 
those  quoted  from  the  cottage  section:  placed  in  family  homes, 
194;  returned  to  kin  or  friends,  1,637;  died,  15;  disposed  of  other- 
wise, 322;  in  institutions  at  close  of  year,  2,371. 

The  Catholic  section  is  characterized  by  the  large  relative 
size  and  importance  of  the  institutions.  While  it  contains  only 
23  of  the  79  institutions,  or  less  than  30  per  cent  of  them,  their 
aggregate  capacity  is  nearly  48  per  cent  and  their  plant  valuation 
over  53  per  cent  of  the  whole.  The  23  plants  are  valued  at 
$3,465,000.  The  combined  capacity  is  4,452  and  the  average  cost 
of  plant  per  bed  is  $778.  There  is  on  record  only  $95,000  of  en- 
dowment. The  total  value  of  property  is  $3,560,000,  or  an  aver- 
age of  $154,783  per  institution. 

The  cost  of  maintenance  is  $479,759,  or  $138  per  capita. 
The  salaries,  low  in  amount  because  most  of  the  Sisters  and  Broth- 

132 


Asvlum  Entrance.     Mobilization  of  Forces 


Drill  for  Cjirls  in  Needlework 


Developing  Future  Mechanics 
San   Francisco  Protestant  Orphan  Asylum,  San  Francisco.     (See  p.  87) 


Kindergarten  Class 


Ciirls'  l'li\  sical  (  ailluro  (Jass 


Boys  in  the  Cjymnasium 
San  Francisco  Protestant  Orphan  Asylum,  San  Francisco.     (See  p.  87) 


SUMMARY    FOR    PRIVATE    CHILD-CARING    INSTITUTIONS 

ers  have  no  stated  compensation,  aggregate  $^74,166,  or  $21  per 
capita.  The  income  from  pubhc  funds  is  ^223,215,  or  $64  per 
capita  and  47  per  cent  of  the  cost  of  maintenance.  There  are 
357  regular  employes,  with  an  average  of  3,469  children  in  care,  or 
9.7  for  each  worker. 

The  total  number  of  children  in  care  during  the  year  is  5,473. 
The  disposition  of  them  is  as  follows :  placed  in  family  homes,  1 72 ; 
returned  to  kin  or  friends,  1,045;  died,  64;  disposed  of  otherwise, 
825;  in  institutions  at  close  of  year,  3,367. 

The  grand  total  of  these  three  sections  is  suggestive.  The 
amount  invested  in  institutional  plants  is  ^6,462, 700.  The  com- 
bined capacity  of  the  79  institutions  is  9,300,  giving  as  the  average 
cost  of  plant  per  bed  I695.  The  total  of  endowment  is  $1,789,800 
and  the  grand  aggregate  of  investment  is  $8,252,500,  or  an  average 
of  $104,462  per  institution. 

For  current  expenses  the  total  is  $1,191,370,  or  for  each  child 
of  the  average  in  care  $166.  The  salaries  aggregate  $282,108,  a 
per  capita  average  of  $39.  The  public  funds  received  are  $394,814, 
or  $55  per  capita  and  33  per  cent  of  the  cost  of  maintenance.  A 
total  of  858  workers  are  employed;  on  the  average  there  are  7,177 
children  in  care,  or  8.4  for  each  worker. 

The  year  brings  a  total  of  12,422  children  into  care.  They 
are  disposed  of  as  follows:  placed  in  family  homes,  530;  returned 
to  kin  or  friends,  3,387;  died,  90;  disposed  of  otherwise,  1,470;  in 
institutions  at  close  of  year,  6,945  •  There  are  also  7 1 5  other  children 
under  their  control  and  supervision  but  located  elsewhere,  some 
in  private  families  and  some  in  hospitals  and  other  institutions. 

Out  of  the  combined  experience  of  all  the  private  child-caring 
institutions  of  California  we  may  draw  quite  definite  inferences. 
For  instance,  it  costs  in  cash  $166  per  year  to  care  for  a  dependent 
child,  and  the  child  also  has  the  use  of  the  institutional  plant.  If 
we  divide  the  value  of  the  79  plants,  $6,462,700,  by  the  average 
number  of  children  in  care,  7,177,  we  have  $900 — the  average 
proportional  amount  of  property  set  apart  for  the  use  of  each 
child.  At  5  per  cent  this  would  bring  $45,  which  added  to  the 
cash  current  expenses  makes  the  average  total  cost  of  maintenance 
$2 1 1  per  capita.  Other  interesting  deductions  may  be  drawn  from 
the  three  sections  of  this  statistical  table. 

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CHAPTER   XIV 

GENERAL  SUMMARY    FOR  ALL  AGENCIES  AND 
INSTITUTIONS 

TO  BIND  as  in  a  sheaf  the  principal  statistics  presented  in  the 
various  tables,  a  general  summary  is  given  at  the  close  of 
this  chapter.  The  summary  of  the  79  child-caring  insti- 
tutions showed  the  work  in  orphanages  and  homes  under  private 
management.  For  this  general  abstract  the  child-placing  agencies 
and  the  institutions  under  public  management  must  be  added. 

The  outline  of  the  work  of  each  institution  includes  a  full 
year's  activities,  the  statistics  covering  the  latest  annual  period  for 
which  records  were  available.  While  these  fiscal  years  do  not  all 
end  at  the  same  date,  the  variation  in  work  done  from  year  to  year 
is  usually  small;  and  as  the  majority  of  the  reports  are  for  an 
annual  period  ending  sometime  in  1913,  these  totals  and  averages 
may  be  considered  as  relating  to  that  year. 

Four  things  should  be  in  mind  when  the  per  capita  expenses 
are  considered:  First,  the  expense  is  lower  in  Catholic  than  in 
non-Catholic  institutions,  largely  because  the  Sisters  and  Brothers 
of  the  various  orders  in  charge  of  the  former  do  much  work  that  in 
the  latter  must  be  performed  by  hired  help.  Second,  the  per 
capita  expense  is  higher  in  the  homes  giving  industrial  or  other 
special  training,  mainly  because  of  a  larger  proportion  of  paid 
employes  to  wards  in  care.  Third,  new  institutions  of  considera- 
ble capacity,  institutions  doing  special  work  for  relatively  few 
children,  and  those  operated  in  behalf  of  a  limited  class  of  the 
population  will  also  be  above  the  average  in  per  capita  expense. 
Fourth,  the  child-placing  agencies  having  few  children  in  care  at 
any  one  time,  and  by  their  methods  caring  for  many  in  the  course 
of  a  year,  expend  a  relatively  small  amount  for  each  child  under  care. 

There  are  included  in  this  summary  14  public  institutions — 
one  for  the  feeble-minded  and  epileptic,  three  for  delinquents,  and 
10  detention  homes  for  all  classes;  also  86  private  institutions — 

•37 


CHILD    WELFARE    WORK     N    CALIFORNIA 

seven  child-placing  agencies,  four  institutions  for  delinquents,  69 
orphanages  and  homes,  and  six  institutions  for  combined  care  of 
adults  and  children.  Totals  and  averages  are  given  separately  for 
the  public  and  private  institutions,  and  the  table  concludes  with 
the  grand  total. 

It  is  worth  noting  that  in  the  public  provision  for  these  classes 
the  state  and  counties  have  invested  $2,341,800  in  plants  with  a 
capacity  of  2,415;  while  private  benevolence  has  invested  ^6,499,- 
900  in  plants  with  a  capacity  of  9,360,  and  added  $1,848,800  in 
endowments,  including  all  sorts  of  funds  other  than  the  plants,  a 
total  permanent  private  investment  of  $8,348,700.  The  grand 
total  of  permanent  investment  in  behalf  of  dependent,  delinquent, 
and  defective  children  is  $10,690,500.  For  a  state  which  only 
recently  passed  the  two-million  mark  in  population,  these  figures 
are  certainly  remarkable. 

The  annual  cost  of  maintenance  calls  for  continuous  paying 
or  giving.  Unlike  funds  in  lands  and  buildings,  there  is  little 
except  ledger  accounts  to  show  for  them  at  the  end  of  the  year. 
The  current  expense  fund  is  the  real  financial  indicator  in  all 
welfare  work.  The  state  and  county  appropriations  for  the  main- 
tenance of  the  14  public  institutions  aggregate  $592,149.  The 
total  cost  of  maintenance  for  the  86  private  agencies  and  institu- 
tions is  $1,362,313,  of  which  $497,201  were  public  funds  from  the 
state  or  county  treasuries,  or  36  per  cent  of  the  whole.  The  re- 
maining $865,112  were  mainly  donations  from  the  churches  and 
the  charitable  public,  as  even  the  aggregate  of  endowment  noted 
above,  if  it  all  were  income  producing,  would  provide  less  than 
$100,000  a  year. 

It  will  thus  be  seen  that  for  the  institutional  care  of  depend- 
ent, delinquent,  and  defective  children  the  tax  payer  must  provide 
annually  for  the  support  of  these  institutions  $1,089,350,  or  in 
public  funds  and  private  gifts  a  total  of  $1,954,462.  Elsewhere 
it  is  made  clear  that  in  addition  nearly  one-third  of  a  million 
($304,252)  is  appropriated  from  public  funds  to  aid  dependents  in 
private  homes.  As  the  latter  form  of  aid  for  dependents  is  rapidly 
increasing,  it  is  safe  to  say  that  the  annual  cash  outlay  in  California 
for  the  maintenance  of  dependent,  delinquent,  and  defective  chil- 
dren exceeds  two  and  a  half  millions. 

138 


Main  Building 


Boys'  Cottaj^e.     Hospital  in  Distance 


Ne!lie-inez  Cottage  for  Infants  and  Small  Children 
Children's  Home  Association,  San  Diego.     (See  p.  83) 


i 

il      J 

1 /■  J 

Babies  at  the  Bar 


Sandlolters  of  San  Diego 


Floating  Away  on  Christmas  Morning 
Children's  Home  Association,  San  Diego.     (See  p.  83) 


GENERAL    SUMMARY    FOR   ALL    AGENCIES 

The  14  public  institutions  have  346  regular  employes  and  an 
average  of  1,880  inmates  in  care,  which  is  5.4  for  each  employe. 
The  86  private  institutions  employ  919  regular  workers  and  have 
an  average  of  7,236  children  in  care,  which  is  7.9  for  each  employe. 
The  grand  total  of  employes  is  1,265,  the  average  number  in  care 
is  9,1 16,  which  gives  a  final  average  of  7.2  per  employe. 

The  children  cared  for  in  these  institutions  are  of  course  the 
vital  center  of  all  this  expense  and  effort.  The  aggregate  numbers 
are  so  large  as  to  almost  bewilder  the  ordinary  reader.  One  can 
appreciate  and  understand  a  single  institution  with  a  hundred 
children  in  care,  but  it  requires  adaptation  and  computation  to 
adequately  comprehend  a  hundred  institutions.  The  social  sym- 
pathizer seldom  has  occasion  to  think  of  charities  in  terms  other 
than  as  they  relate  to  a  single  community;  often  the  social  worker 
is  forced  to  think  in  terms  of  the  state  or  even  of  the  nation.  A 
review  of  the  section  giving  the  statistics  of  children  will  emphasize 
the  California  work  for  even  the  social  worker. 

The  public  institutions  began  the  year  with  1,860  inmates, 
received  during  the  year  4,325,  making  a  total  of  6,185.  Of  these, 
402  were  placed  in  family  homes,  2,251  were  returned  to  kin  or 
friends,  76  died,  1,622  were  disposed  of  otherwise,  and  1,834  re- 
mained in  the  institutions  at  the  close  of  the  year.  There  was  a 
net  decrease  in  population  of  26,  but  there  were  at  least  4,351 
changes  within  the  twelve  months. 

The  private  institutions  began  the  year  with  6,948  children, 
received  during  the  year  7,642,  making  a  total  of  14,590.  The 
grand  total  in  both  public  and  private  institutions  by  these  figures 
is,  therefore,  20,775  children  in  care  during  the  year. 

There  is  some  little  interchange  of  wards  between  institu- 
tions, so  this  number  includes  some  counted  more  than  once. 
Elsewhere  the  matter  is  more  fully  discussed,  with  the  conclusion 
that  not  less  than  19,000  different  children  are  wards  of  these 
institutions  every  year. 

The  14,590  wards  in  the  private  institutions  were  disposed  of 
as  follows:  placed  in  family  homes,  926;  returned  to  kin  or  friends, 
3,909;  died,  90;  disposed  of  otherwise,  2,661;  in  institutions  at 
close  of  year,  7,004.  The  net  gain  in  population  was  only  56,  but 
at  least  7,642  changes  took  place  during  the  year. 

139 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

Comparing  the  average  number  on  hand  with  the  total  in 
care  during  the  year,  the  pubHc  institutions  (which  include  the 
detention  homes,  intended  for  brief  stay)  average  a  complete 
change  of  inmates  twice  a  year;  and  the  private  institutions  a 
change  of  children  every  twelve  months. 

Study  of  the  table  itself  will  show  minor  groupings,  from 
which  many  comparisons  and  deductions  may  be  drawn.  The 
orphanages  and  homes  may  be  compared  with  the  institutions  for 
delinquents;  or  different  groups  of  orphanages  and  homes  with 
each  other.  The  reader  is  invited  to  give  careful  attention  to  this 
summary,  as  perhaps  the  most  important  table  in  the  book. 

These  statistics  of  finance  and  children  in  their  greatness  in 
one  sense  are  a  magnificent  testimony  to  large-hearted  liberality 
toward  the  most  helpless  class  of  dependents  known  to  modern 
society.  In  another  sense  the  very  existence  of  so  many  institu- 
tions, and  the  large  amounts  of  money  required  for  their  establish- 
ment and  maintenance,  are  an  arraignment  of  our  civilization, 
which  causes  or  permits  such  immense  numbers  of  innocent  chil- 
dren to  become  homeless  and  to  suffer  want. 

The  facts  here  brought  out  will  lead  the  intelligent  citizen  to 
thoughtfully  consider  three  principal  questions  related  to  this 
subject: 

1.  Are  the  present  methods  of  caring  for  all  these  chil- 
dren the  best  possible? 

2.  Is  there  any  way  to  lessen  the  number  of  all  these 
children  and  to  better  the  condition  of  those  who  remain? 

3.  What  economies  can  be  effected  so  that  the  state  will  not 
be  obliged  to  annually  expend  over  ^1,000,000  from  public  funds, 
and  about  $1,000,000  more  from  charitable  and  philanthropic 
sources  for  the  institutional  care  of  these  classes,  to  say  nothing 
of  the  official  and  private  care  of  many  hundreds  more  of  dependent 
children  in  private  homes,  costing  perhaps  another  $500,000? 

After  all  the  three  questions  are  really  one,  being  only  a 
statement  of  the  central  idea  from  different  viewpoints.  In  the 
efforts  to  solve  these  and  related  problems  are  needed  the  best 
thought,  the  highest  wisdom,  and  the  truest  devotion  to  humanity 
to  be  found  in  the  commonwealth. 


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143 


CHAPTER  XV 

COMBINED  COUNTY  AND  STATE  AID  FOR  DEPENDENT 

CHILDREN 

FOR  several  years  the  amounts  paid  from  public  funds  for 
the  support  of  dependent  children  in  California  have  been 
variously  estimated,  but  never  accurately  known.  No 
bureau  or  official  of  the  state  was  charged  with  the  duty  of  collecting 
such  data,  and  until  the  present  survey  of  the  state  was  made 
by  the  Russell  Sage  Foundation  only  a  part  of  the  statistics 
were  anywhere  available. 

It  should  be  noted  that  the  state  board  of  control  at  Sacra- 
mento compiles  the  statistics  of  the  support  given  from  the  state 
treasury.  These  relate  to  amounts  allowed  from  state  funds 
for  orphans,  half-orphans,  abandoned,  and  foundling  children, 
who  are  either  in  regularly  incorporated  institutions  and  reported 
by  them,  or  in  the  various  counties,  and  receiving  aid  on  requisi- 
tions from  the  county  supervisors.  For  valued  assistance  in  the 
compilation  of  the  figures  used  in  this  chapter  and  tabulation, 
indebtedness  to  the  state  board  of  control  is  gratefully  ac- 
knowledged. 

As  stated  elsewhere,  conditions  and  methods  in  relation 
to  dependent  children  in  California  are  in  a  transitional  state. 
This  may  be  suggestively  noted  in  the  rapidly  changing  statistics 
of  state  aid.  Take  for  instance  the  amounts  for  the  three  years 
ending  June  30,  1911,  as  illustrative  of  the  variations  in  the  sup: 
port  given  from  the  state  treasury  to  the  above  named  classes- 


TABLE  F.— STATE  AID  GRANTED 
Fiscal  Years  Ending  June  30 

TO  DEPENDENT 
1909.  1910,  and  191 

CHILDRE 

I 

:n 

Aided  in 

Aided 

1909       1 

1910 

1911 

Through  private  institutions 
On  requisition  of  county  officers 

$272,562 
119.005 

I266.500 
131.808 

$248,599 
180,801 

Total 

I391.S67 

$398,308 

$429,400 

144 


COMBINED   COUNTY    AND    STATE    AID 

It  will  be  seen  that  the  amounts  paid  directly  by  the  state 
for  the  support  of  dependent  children  in  institutions  are  steadily 
diminishing,  while  amounts  paid  for  their  support  through  county 
officials  are  more  rapidly  increasing.  The  aggregate  from  state 
funds  here  shown  is  larger  than  for  several  years. 

The  state  board  of  control  very  kindly  furnished  the  inter- 
esting figures  given  below,  showing  the  numbers  and  classification 
of  children  aided  for  the  three  years  1909,  19 10,  and  191 1.  Those 
said  to  be  "in  counties"  are  largely  in  family  homes  and  receive 
the  aid  through  the  county  supervisors.  This  table  will  be  as 
suggestive  as  the  coordinate  one  relating  to  finance.  The  statistics 
cover  the  fiscal  year  ending  June  30th  of  the  year  named. 

TABLE  G.— DEPENDENT  CHILDREN  RECEIVING  STATE  AID 
Fiscal  Years  Ending  June  30,  1909.  1910,  and  1911 


Year  Aided 


Children  aided 


Orphans 


Half- 
orphans 


Aban-  Found- 

doned  lings 


Total 


1909 

In  private  institutions  . 
In  counties 

661 

158 

3.380 

2,309 

166 
96 

166 

4.373 
2,563 

Total 

S19 

5,689 

262 

166 

6.936 

I9I0 

In  private  institutions  . 
In  counties 

623 

164 

3.368 

2,388 

157 
96 

192 

4,340 
2,648 

Total 

787 

S.756 

253 

192 

6,988 

I9II 

In  private  institutions  . 
In  counties 

52s 
184 

3.243 
3.050 

140 
198 

153 

4 

4,061 
3.436 

Total 

709 

6,293 

338 

157 

7.497 

The  entire  number  of  these  children  receiving  aid  from  private 
sources  and  the  state  has  been  variously  estimated,  but  for  lack  of 
reliable  statistics  all  up  to  the  present  has  been  mere  guesswork. 
Having  now  the  statistics  of  private  institutions  carefully  compiled, 
and  data  at  hand  from  the  individual  counties  and  the  state  as 
a  whole,  a  real  approximation  of  the  actual  number  is  possible. 

It  will  be  seen  that  during  the  fiscal  year  ending  June  30, 
1911,  state  aid  was  given  3,436  children  through  the  county 
supervisors  to  the  amount  of  ^180,801,  or  an  average  of  $53  per 
child.  These  children  were  practically  all  in  family  homes,  either 
of  relatives  or  outsiders;  for  if  in  institutions,  application  would 
in  most  cases  have  been  made  directly.     During  this  same  period 

145 


CHILD   WELFARE    WORK    IN    CALIFORNIA 

the  county  oificers  expended  also  ^123,451  from  county  funds 
for  the  maintenance  of  dependent  children  boarded  or  cared  for 
in  family  homes.  Doubtless  the  amounts  per  child  would  average 
about  the  same  as  for  state  funds.  Therefore  about  2,330  different 
dependent  children  were  thus  aided  by  county  funds  during  the 
last  fiscal  year.* 

Now  as  to  the  children  in  private  institutions.  The  state 
gave  aid  to  4,061  children  within  the  fiscal  year  ending  June  30, 
191 1,  on  lists  forwarded  by  the  orphanages  and  homes,  the  amount 
aggregating  ^248,599,  or  an  average  of  $61  per  child.  During  the 
same  fiscal  year  the  counties  expended  $126,179  from  county  funds 
for  the  aid  of  children  in  private  institutions.  On  the  same  basis 
as  the  average  state  aid  per  child,  this  amount  indicates  about 
2,068  children.  As  will  be  noted,  the  average  per  child  is  a  little 
higher  in  institutions  than  for  outside  aid — probably  because  the 
need  and  the  care  are  more  permanent.  It  is  certain  that  some  of 
those  2,068  children  are  in  other  than  our  listed  institutions,  a 
few  even  in  other  states,  but  for  all  practical  purposes  they  may 
be  accounted  covered  in  our  institutional  tables. 

From  the  above  data  the  number  of  dependent  children 
receiving  at  least  partial  maintenance  from  public  funds  is  easily 
approximated.  Let  it  be  stated  again  that  this  estimate  does  not 
include  the  children  in  the  juvenile  detention  homes,  or  those 
in  the  state  institutions — the  Sonoma  State  Home  at  Eldridge, 
and  the  training  schools  at  lone,  Ventura,  and  Whittier. 

Aided  by  the  state  in  private  institutions     ....  4,061 

Aided  by  the  counties  in  private  institutions     .      .      .  2,068 

Aided  by  the  state  in  family  homes 3.436 

Aided  by  the  counties  in  family  homes 2,330 

Total  receiving  aid  from  public  funds    ....  11,895 

By  the  census  of  1910  the  population  of  California  was 
2,377,549.  In  191 1,  1 1,895  children  were  aided  by  public  funds,  a 
ratio  of  500  in  each  100,000  inhabitants.  This  is  more  than  double 
the  ratio  for  California  shown  in  the  comparative  table  of  the  1 1 
states  (see  p.  17)  which  includes  some  unsubsidized  institutions 
but  does  not  include  children  given  public  aid  in  private  homes. 

*The  addition  of  1913  to  the  state  aid  statute,  called  the  widows'  pension 
law,  authorizes  the  payment  of  both  state  and  county  funds  to  the  same  persons. 

146 


COMBINED   COUNTY    AND    STATE    AID 

It  is  also  possible  to  approximate  the  entire  number  of 
different  children  receiving  aid  from  both  public  and  private 
sources,  with  the  exception  of  the  detention  homes  and  training 
schools.  Drawn  from  figures  heretofore  presented,  and  relating 
to  the  fiscal  year  ending  June  30,  191 1,  the  estimate  will  then  be 
as  follows: 

Aided  by  the  state  in  family  homes 3.436 

Aided  by  counties  in  family  homes 2,330 

Total  recorded  in  year  by  private  institutions   .  14,590* 

Total 20,356 

Deduction  for  those  probably  counted  more  than  once, 

due  to  institutional  interchange 1.356 

Approximate  net  total  cared  for 19,000 

It  is  fair  to  say  that  in  some  cases  the  state  aid  may  be 
supplemented  by  county  aid,  and  in  such  cases  there  would  be 
double  counting.  On  the  other  hand  is  the  fact  that  some  county 
officers  provided  the  desired  statistics  reluctantly,  and  others 
scrutinized  their  records  carelessly  because  the  request  for  such 
data  was  outside  their  regular  routine.  The  children  or  the  funds 
missed  or  overlooked  under  such  conditions  will  probably  balance 
all  those  receiving  double  aid.  It  may  therefore  be  confidently 
stated  that  about  12,000  different  children  annually  receive  aid 
from  public  funds  in  California,  either  in  private  institutions  or 
in  family  homes,  and  at  least  19,000  are  dependent  in  the  sense 
of  receiving  either  public  or  private  aid.  For  reasons  already 
given,  the  numbers  are  only  approximate,  as  it  was  impossible 
to  obtain  exact  data  covering  a  single  fiscal  year. 

To  cover  the  entire  work  done  in  California  for  defective, 
delinquent,  and  dependent  children,  we  must  of  course  include  the 
public  institutions.  The  numbers  involved  will  be  about  as 
follows: 

Aided  by  the  state  and  counties  in  family  homes   .  5,766 

Wards  of  private  institutions  during  year    ....        14,590* 
Wards  of  public  institutions  during  year      ....  6,185* 

Total 26,541 

Deduction  for  those  probably  counted  more  than  once  1,541 

Approximate  net  total  cared  for 25,000 

*  Figures,  from  Table  9,  relate  to  fiscal  years  of  institutions,  from  January 
I,  1910  to  December  31,  1914. 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

In  the  county  part  of  the  table  at  the  close  of  the  chapter  a 
new  field  is  entered.  As  previously  mentioned,  the  amounts 
drawn  from  the  state  treasury  are  not  all  the  public  funds  devoted 
to  dependents,  but  those  drawn  from  the  county  treasuries 
hitherto  have  been  given  little  general  consideration.  In  the 
above  study  of  numbers  of  children  this  part  of  the  public  funds 
was  definitely  used,  but  the  matter  deserves  more  detailed  con- 
sideration. 

Until  now,  the  amounts  drawn  from  county  funds  for 
the  aid  of  juvenile  dependents  have  never  been  listed  or  def- 
initely considered  a  part  of  the  public  support  of  dependent 
children.  While  it  has  been  generally  understood  that  practically 
all  the  counties  of  the  state  are  paying  something  from  their 
local  treasuries  for  the  care  and  support  of  this  class,  except 
in  a  few  of  the  most  populous  and  wealthy  the  amounts  were 
never  published.  In  fact,  many  of  the  counties  have  never  so 
separated  the  items  of  their  relief  of  adult  indigents  from  those 
relating  to  the  care  and  aid  of  dependent  minors  as  to  know  them- 
selves what  amounts  were  so  expended. 

There  is  no  state  law  in  California  requiring  the  counties 
to  have  uniform  systems  of  records.  Each  county  is  in  many 
matters  a  law  unto  itself.  Something  of  uniformity  has  been 
brought  about  through  the  reports  which  must  be  made  to  the 
state  officers.  This  has  hitherto  not  included  specific  data  in 
regard  to  dependent  children.  A  new  law  passed  in  191 1,  requir- 
ing reports  to  the  state  board  of  control,  now  covers  this  subject. 
The  first  regular  schedules  were  sent  out  in  191 2,  but  no  data 
from  returns  were  available  in  time  to  use  for  this  study. 

The  material  for  the  tabulation  of  county  aid  to  dependent 
children  shown  in  the  table  was  collected  during  October,  Novem- 
ber, and  December,  191 1.  Previous  to  this,  kindly  but  urgent 
explanatory  letters  with  a  form  prepared  for  the  desired  statistics, 
had  been  sent  out  to  all  county  auditors.  After  waiting  a  reason- 
able time  for  the  replies,  a  few  of  which  were  received,  a  second 
letter  was  sent  with  but  little  better  results.  Then  as  more  than 
half  of  the  counties  had  not  responded,  they  were  personally  visited 
during  the  months  named  and  the  statistics  slowly  accumulated. 
The  task  was  finished  late  in  December,  191 1 . 

148 


Home  Village,  from  Hill  on  the  North 


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Boys'  and  Girls'   Industrial  Home  and  Farm,  Lytton.     (See  p.  loi) 


Sonoma  Cottage.     Built  by  the  Boys 


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bupper  I  ime 
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COMBINED   COUNTY   AND    STATE    AID 

The  Statistics  gathered  do  not  include  the  support  of  the 
children  in  the  state  schools  at  lone,  Ventura,  and  Whittier,  nor 
of  those  in  the  Sonoma  State  Home  at  Eldridge.  Nor  are  the 
juvenile  detention  homes  included,  although  they  give  temporary 
care  to  many  dependents,  unless  in  a  few  instances  county  officers 
have  figured  in  something  as  a  part  of  the  care  of  children  in 
institutions.  All  reports  were  for  the  fiscal  year  ending  June  30, 
191 1. 

The  term  dependent  children  is  intended  to  include  all 
orphan,  half-orphan,  and  abandoned  children,  and  all  others 
not  formally  recorded  as  delinquent  or  feeble-minded,  who  are 
either  wholly  or  partially  supported  by  public  funds,  or  by  the 
donations  of  the  charitable  or  humane. 

This  being  the  first  time  an  effort  has  been  made  to  secure 
statistics  of  amounts  expended  for  dependent  minors  from  county 
funds,  it  was  necessary  to  overcome  some  inertia  on  the  part 
of  county  officers,  some  of  whom  resent  the  varied  and  continual 
demands  on  them  for  all  sorts  of  information.  They  may,  in 
some  cases,  have  failed  to  search  out  all  the  items  that  should 
be  credited  in  their  counties.  This  fact  causes  errors,  if  any  exist, 
on  the  side  of  conservatism.  The  amounts  are  too  small  rather 
than  too  large. 

It  will  be  a  matter  of  some  surprise  to  note  in  the  tabulation 
that  the  counties  of  California  are  paying  a  quarter  of  a  million 
dollars  each  year  from  their  local  treasuries  for  the  care  of  needy 
children,  in  addition  to  the  amounts  paid  by  the  state.  By  the 
adoption  of  the  widows'  pension  law  in  191 3  this  amount  will  be 
greatly  increased.  The  totals  as  given  in  the  table  for  the  year 
ending  June  30,  191 1,  are:  Counties,  $249,630;  state,  $429,400; 
combined  total,  $679,030.  In  proportion  to  population,  this 
expenditure  exceeds  what  is  paid  from  public  funds  by  any  other 
state  in  the  Union,  except  New  York,  for  the  support  of  dependent 
children,  and  in  actual  amount  is  exceeded  only  by  New  York 
which  has  nearly  four  times  as  many  people,  and  possibly  Penn- 
sylvania, with  about  three  times  the  population. 


149 


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151 


CHAPTER   XVI 
POPULATION,    EXPENSE,   AND   PUBLIC   FUNDS 

TO  facilitate  the  study  of  the  institutional  population,  current 
expense,  and  amounts  received  from  public  funds,  a  table 
is  appended  to  this  chapter  entitled  Population  and  Ex- 
pense for  All  Agencies  and  Institutions.  This  table  shows  the  pub- 
lic child-caring  institutions  entirely  supported  from  the  state  and 
county  treasuries,  the  private  institutions  assisted  by  public  sub- 
sidies, and  the  private  institutions  not  subsidized.  Totals  are  given 
for  each  class.  At  the  close  the  child-caring  agencies  are  added 
with  a  final  grand  total  of  organizations,  average  numbers  in  care, 
and  the  cost  of  support.  The  table  also  gives  for  these  various 
classes  of  institutions  the  relative  amounts  per  100,000  inhabi- 
tants for  the  average  number  of  children  in  care,  the  expense  of 
maintenance,  and  the  public  funds  appropriated. 

This  grouping  of  the  statistics  permits  numerous  comparisons 
from  various  viewpoints.  In  the  careful  study  of  numbers  and 
finance  on  the  basis  of  each  100,000  of  the  state's  inhabitants,  the 
calculations  are  made  from  the  United  States  Census  figures  of 
1910,  which  give  California's  population  at  2,377,549. 

It  should  be  stated  that  the  word  "subsidies"  and  the  phrase 
"institutions  receiving  state  or  county  aid"  are  strenuously  ob- 
jected to  by  some  social  workers  in  California.  They  declare  that 
"aid"  is  not  given  to  institutions  but  to  orphans  and  other  needy 
children.  The  fact  that  the  majority  of  them  are  in  private  institu- 
tions has  no  essential  connection  with  the  matter.  Yet  as  the 
institutions  hold  the  children  in  their  custody  and  control,  prepare 
the  lists  on  which  the  demand  is  made,  and  receive  the  aid  which 
the  state  provides  for  the  children  in  their  care,  the  expressions 
above  used  may  be  accepted,  subject  to  this  explanation.  The 
public  funds  received  undoubtedly  aid  both  the  institutions  and 
the  children  in  their  care. 

As  stated  by  W.  Almont  Gates,  former  secretary  of  the  state 

152 


POPULATION,    EXPENSE,    AND    PUBLIC    FUNDS 

board  of  charities  and  corrections,  in  defining  the  legal  basis  of 
appropriations:  "The  state  pays  to  private  institutions,  for  each 
full  orphan  supported  ^loo  per  year;  for  each  half-orphan,  ^75 
per  year;  for  each  abandoned  child,  I75  per  year;  and  for  each 
foundling,  $12.50  per  month  until  it  is  eighteen  months  old."* 

In  further  definition  of  the  status  required  for  a  place  on  the 
state  lists  for  financial  help,  it  should  be  noted  that  no  such  chil- 
dren are  eligible  for  state  aid  unless  they  have  acquired  a  legal 
residence  in  the  state,  and  unless  they  are  in  an  incorporated  in- 
stitution maintaining  an  average  of  not  less  than  20  children. 

By  referring  to  Section  A  of  the  tables  relating  to  private 
institutions,  the  ages  and  classes  of  children  cared  for  by  each  may 
be  ascertained.  Of  the  79  private  institutions  in  our  tables,  61 
received  a  part  of  their  support  from  public  funds.  These  received 
an  aggregate  of  $394,8 14,  which  was  38  per  cent  of  their  annual 
expense  for  maintenance.  Four  of  them  are  institutions  for  delin- 
quents and  57  care  for  dependents. 

Until  very  recent  years  there  has  been  no  regular  examina- 
tion by  any  officer  of  the  state  to  determine  which  and  how  many 
of  the  children  in  these  institutions,  and  for  whom  state  aid  is 
claimed,  are  actually  and  necessarily  dependent.  During  the 
years  19 10  and  191 1  an  officer  of  the  state  board  of  examiners  did 
some  work  on  this  line,  which  resulted  in  a  material  reduction  in 
the  number  of  those  to  whom  state  aid  was  granted.  Under  one 
of  the  new  laws  which  went  into  effect  in  191 1,  all  of  these  insti- 
tutions are  placed  under  the  supervision  of  the  state  board  of 
charities  and  corrections,  and  the  careful  examination  of  condi- 
tions by  agents  of  the  board  since  then  has  resulted  in  the  closing 
of  a  few  inferior  institutions,  better  quality  of  service  on  the  part 
of  others,  and  considerable  reduction  in  the  numbers  of  children 
in  institutional  care  listed  for  allowances  under  the  state  laws. 

A  few  years  ago  A.  J.  Pillsbury,  then  secretary  of  the  state 

board  of  examiners,  stated  that  from  the  best  figures  that  board 

could  then  obtain,  the  state  paid  about  three-fifths  of  the  cost  of 

maintaining  the  orphan  and  other  dependent  children  in  these 

institutions.     This  was  before  careful  supervision  was  inaugurated 

*  California  State  Board  of  Charities  and  Corrections.  Biennial  Report, 
1910,  p.  27. 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

and  the  above  noted  reduction  in  numbers  resulted.  As  above 
mentioned  the  table  at  the  close  of  this  chapter  shows  that  38  per 
cent,  or  a  little  less  than  two-fifths  of  the  total  maintenance,  is  from 
public  funds.  State  supervision,  which  has  had  only  a  few  years 
of  full  authority,  seems  already  to  have  accomplished  two  things; 
it  has  reduced  the  number  of  institutional  dependents  requiring 
state  aid  and  has  increased  the  proportionate  cost  of  service  borne 
by  the  institutions  themselves,  the  latter  fairly  implying  a  higher 
standard  of  care,  as  the  actual  sum  per  child  in  state  aid  remains 
the  same. 

The  basis  of  the  per  cent  here  given  is  the  entire  average 
number  in  care.  It  should  not  be  forgotten  that  this  average  con- 
tains some  children  in  each  institution  not  listed  for  state  aid. 
Mr.  Pillsbury's  estimate  refers  only  to  children  of  the  classes  named 
previously  and  listed  in  reports  to  the  state  officers  as  inmates  of 
the  institutions.  It  is  evident  that  to  take  the  entire  population 
into  account  might  slightly  modify  the  percentage.  However, 
while  the  variation  would  be  small,  it  is  necessarily  ignored  en- 
tirely, because  there  is  no  way  to  separate  those  lists  from  the  lists 
of  other  children  in  the  annual  reports. 

To  arrive  at  the  exact  ratio  of  public  aid  to  the  cost  of 
maintenance  in  the  private  institutions  requires  carefully  classi- 
fied lists  of  all  those  receiving  aid,  the  length  of  time  spent  in  the 
institutions,  and  the  amount  allowed  for  their  support;  the  re- 
sults to  be  compared  with  the  total  number  cared  for  and  the 
entire  cost  of  maintenance.  The  obtaining  of  such  lists  was  not 
attempted. 

Some  of  the  unlisted  children  may  be  real  charity  cases,  for 
technical  reasons  not  listed  for  state  aid.  Others  are  "boarders," 
temporarily  cared  for  at  the  institutions  at  the  request  of  parents 
or  guardians,  who  are  expected  to  pay  stated  sums  for  their  main- 
tenance. Still  others  are  children  assigned  to  these  institutions 
for  various  reasons  by  the  local  authorities,  and  the  city  or  county 
usually  becomes  responsible  for  a  stated  amount  for  each  child. 
In  a  few  cases  the  county  is  able  to  make  a  demand  upon  the 
state  treasury  for  reimbursement,  and  the  state  thus  pays  indi- 
rectly for  the  institutional  care  of  children  not  listed  by  the  insti- 
tutions themselves. 

154 


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Learning  to  Cook 


On  the  Playground 
Roman  Catholic  Orphan  Asylum,  San  Francisco.     (See  p.  1 12) 


POPULATION,    EXPENSE,    AND    PUBLIC    FUNDS 

A  new  provision  relating  to  the  public  support  of  children 
by  counties  is  found  in  a  paragraph  of  the  juvenile  court  law  which 
was  enacted  in  191 3.  The  provision  is  included  in  Section  23  of 
the  law  and  is  as  follows: 

Any  order  providing  for  the  custody  of  a  neglected,  dependent,  or 
delinquent  person  may  provide  that  the  expense  of  maintaining  such  per- 
son shall  be  paid  by  the  parent  or  parents  or  guardian  of  such  person,  and 
in  such  case  shall  state  the  amount  to  be  so  paid;  and  shall  determine 
whether  or  not  the  parent  or  parents  or  guardian  shall  exercise  any  con- 
trol of  such  person  and  determine  the  extent  thereof,  .  .  .  If  it  be 
found,  however,  that  the  parent  or  parents  or  guardian  of  a  neglected, 
dependent  or  delinquent  person  is  unable  to  pay  the  whole  expense  of 
maintaining  such  person,  the  court  may,  in  the  order  providing  for  the 
custody  of  such  person,  direct  such  additional  amount  as  may  be  neces- 
sary to  support  such  person  to  be  paid  from  the  county  treasury  of  the 
county,  the  amount  so  ordered  to  be  paid  from  the  treasury  of  said  county 
not  to  exceed  in  the  case  of  any  one  person  the  sum  of  eleven  dollars  per 
month.* 

In  the  tables  the  columns  headed  public  funds  contain 
statistics  relating  to  both  state  and  county  aid.  A  majority  of 
the  institutions  receive  only  state  aid;  some  receive  both;  a  few 
have  public  funds  only  from  the  county  or  a  city. 

The  columns  indicating  the  public  funds  per  capita,  based 
on  the  average  number  in  care,  and  the  per  cent  the  public  funds 
bear  to  the  entire  cost  of  maintenance  are  exceedingly  interesting. 
Comparison  of  public  with  private  institutions,  and  the  various 
groups  of  private  institutions  with  each  other  will  be  profitable. 

The  average  time  in  the  institution  for  which  state  aid  is 
obtained  is  about  ten  months.  This  refers  to  a  single  year,  but 
of  course  any  child  may  be  listed  in  successive  years.  As  will  be 
noted  in  the  table,  the  average  per  capita  from  public  funds  for 
the  children  in  the  four  private  homes  for  delinquents  is  ^99;  and 
in  the  57  private  homes  for  dependents  it  is  $60. 

The  following  summary  and  comparison  of  public  and  private 
child-caring  organizations,  drawn  and  figured  from  Table  1 1,  will 
be  of  interest. 

In  the  table  drawn  from  statistics  in  the  census  volume  on 

*  Assembly  Bill  No.  1684,  approved  June  16,  1913. 


CHILD   WELFARE    WORK    IN    CALIFORNIA 
SPECIAL  SUMMARY  OF  POPULATION  AND  EXPENSE  FROM  TABLE  ii 


Data  for  institutions  and  agencies 


Public 


Private 


Public  and 
private 


Institutions 

Number 4  79 

Average  number  of  children  in  care     ....  i,688  7.177 

Current  expense 

Amount $511,418  $1,191,370 

Average  per  child $303  J 166 

Public  funds 

Amount $511,418  $394,814 

Per  cent  of  expense 100  33 

Amounts  per  100,000  inhabitants 

Average  number  of  children  in  care       ...  70  302 

Total  current  expense $21,506  $50,099 

Public  funds $21,506  $16,602 

Child-Caring  Agencies 

Number ._ 10  7 

Average  number  of  children  in  care       ....  192  59 

Current  expense $80,731  $i70.943 

Public  funds 

Amount |8o,73l  $102,387 

Per  cent  of  expense 100  60 

Amounts  per  100,000  inhabitants 

Average  number  of  children  in  care       ...  8  2 

Total  current  expense $3,395  $7,189 

Public  funds $3,395  $4.306 

Institutions  and  Agencies 

Number 14  86 

Average  number  of  children  in  care     ....  1,880  7.236 

Current  expense $592,149  $1,362,313 

Public  funds 

Amount $592,149  $497,201 

Per  cent  of  expense 100  36 

Amounts  per  100,000  inhabitants 

Average  number  of  children  in  care       ...  78  304 

Total  current  expense $24,901  $57,288 

Public  funds $24,901  $20,908 


17 

251 

$251,674 

$183,118 
73 


$10,584 
$7,701 


100 
9,116 

$1,954,462 

$1,089,350 
56 

382 

$82,189 
$45,809 


Benevolent  Institutions,  given  in  Chapter  I,  California  was  credited 
with  236.4  dependent  children  in  private  institutions  for  every 
100,000  of  the  population.  Our  table  (Table  ii)  from  reports  of 
75  private  institutions  for  dependents,  a  larger  number  than  re- 
ported to  the  census  bureau,  shows  that  there  are  290  inmates 
to  the  100,000.  Adding  the  four  private  institutions  for  delin- 
quents, the  ratio  is  302  per  100,000.  The  total,  including  the 
four  state  institutions,  is  372  per  100,000;  and  including  the  deten- 
tion homes  and  the  receiving  homes  of  the  child-placing  agencies, 
the  grand  total  is  382.  Other  interesting  and  important  matters 
are  indicated  in  this  table. 

While  on  the  whole  the  number  of  dependent  children  in 
institutions  is  slightly  smaller  than  in  former  years  and  the  num- 

156 


POPULATION,    EXPENSE,    AND    PUBLIC    FUNDS 

ber  of  those  for  whom  state  aid  is  granted  is  decreasing  to  some 
extent,  the  number  maintained  by  the  counties  both  in  institu- 
tions and  outside  is  rapidly  increasing.  Many  children  who 
under  former  conditions  would  have  been  placed  in  institutions 
with  aid  from  state  funds,  now  receive  "outside  relief,"  or  the 
mother  obtains  a  so-called  "pension."  In  this  way  any  apparent 
decrease  has  been  cancelled,  and  in  fact  the  total  number  of 
children  aided  from  public  funds  increases  every  year. 

A  definite  example  of  remarkable  increase  in  county  aid 
may  well  be  given.  San  Francisco  County  in  191 1  paid  from  its 
treasury  for  the  support  of  dependent  children  in  institutions 
155,135.  (See  Table  10,  p.  150.)  By  the  kindness  of  Hon.  Stuart 
A.  Queen,  secretary  of  the  state  board  of  charities,  we  are  able  to 
present  below  the  list  of  institutions  and  amounts  paid  to  them 
for  the  care  of  children  by  the  same  county  in  191 3. 

Children's  Agency  of  the  Associated  Charities $36,929 

Eureka  Benevolent  Society 9,866 

Catholic  Humane  Bureau 54.494 

Albertinium  Orphanage 7.199 

Armitage  Orphanage 220 

Boys'  and  Girls'  Aid  Society 6,104 

California  Girls'  Training  Home 1,869 

Florence  Crittenton  Home 244 

Boys'  and  Girls'  Industrial  Home  and  Farm 2,203 

Santa  Cruz  Female  Orphan  Asylum 1,690 

Infant  Shelter 1,400 

Maria  Kip  Orphanage 528 

Maud  B.  Booth  Home 5, 174 

Mount  St.  Joseph's  Infant  Orphan  Asylum 8,811 

Saint  Francis'  Orphanage 415 

Presbyterian  Orphanage  and  Farm 396 

Roman  Catholic  Orphan  Asylum 12,562 

St.  Francis  Girls'  Directory 964 

Ladies'  Protection  and  Relief  Society 1,626 

St.  Mary's  Orphanage 2,426 

Nursery  for  Homeless  Children 1,176 

St.  Vincent's  Orphan  Asylum 18,566 

Fred  Finch  Orphanage no 

McKinley  Orphanage 1,056 

St.  Catherine's  Orphanage         3. 945 

Total        .      .  S179.973 

The  important  subject  of  state  and  county  aid  for  dependent 
children  requires  for  full  and  adequate  treatment  many  matters  and 
details  not  included  in  this  chapter  or  the  table  at  its  close.  Present 
deficiencies  are  largely  due  to  the  impossibility  of  finding  or  com- 
piling the  requisite  data  when  the  study  was  made.  Under  the  new 
forms  of  record  prepared  by  the  state  boards,  in  accordance  with 
the  laws  enacted  in  191 1  and  1913,  a  few  years  will  produce  far 
more  detailed  and  comprehensive  statistics. 

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159 


CHAPTER  XVII 
DAY  NURSERIES  AND  SETTLEMENT  CENTERS 

WHAT  social  workers  call  the  "poverty  line"  is  an  imagi- 
nary one  like  the  equator,  passing  not  around  the  earth 
but  through  society.  It  divides  people  who  are  ade- 
quately self-supporting  from  those  who  have  not  enough  to  main- 
tain proper  living  conditions  and  in  the  main  need  or  require  chari- 
table aid.  Most  of  the  children  in  agencies  or  institutions  are 
members  of  families  that  have  definitely  fallen  below  the  "pov- 
erty line,"  and  thousands  more  are  but  slightly  above  it.  These 
multitudes  are  the  objects  of  especial  philanthropic  thought,  and 
of  extensive  organized  social  and  charitable  efforts, 
'^'^hese  various  organizations,  which  may  be  called  auxiliary 
child  welfare  agencies,  not  only  do  their  own  important  preventive 
work  but  also  render  valuable  co-operative  service  to  the  agencies 
for  child-placing  in  families  and  the  institutions  for  permanent 
care.  Some  are  only  partially  devoted  to  the  relief  of  depressed 
children,  and  are  related  chiefly  to  the  adult  population.  Many 
are  organized  to  mitigate  conditions  affecting  entire  families. 
AH  materially  affect  child  welfare  and  conditions  related  to  depend- 
ency and  delinquency,  andJienc^^arfejiroper-subjeets  for  inclusion 
here. 

These  organizations  seldom  receive  children  as  wards,  or  as- 
sume more  than  a  very  limited  control.  Nor  do  they  often  take 
children  into  their  care  for  more  than  a  few  days.  Their  work  is 
usually  advisory,  educational,  or  remedial,  yet  nearly  always 
charitable.  Their  direct  relation  to  the  agencies  and  institutions 
previously  treated  is  limited  to  the  giving  of  information  concern- 
ing cases  which  need  help,  and  the  arrangement  for  such  agencies 
and  institutions  to  assume  the  care  or  control  of  children  who  are 
homeless,  destitute,  or  require  discipline  and  regulation. 

These  agencies  are  mostly  of  modern  origin,  nearly  all  having 
developed  within  the  last  two  decades.  They  are  now  multiplying 
in  all  American  cities  and  seem  to  be  accomplishing  much  good 
for  the  classes  bordering  the  "poverty  line."      In  this  study  only 

1 60 


DAY  NURSERIES  AND  SETTLEMENT  CENTERS 

a  few  of  the  most  prominent  and  typical  can  be  presented.  Four 
lines  have  been  selected  as  covering  the  principal  elements  of  this 
auxiliary  work.  Day  nurseries  and  settlement  centers  are  consid- 
ered in  this  chapter.  The  next  chapter  is  devoted  to  those  more 
directly  alleviative  and  protective — the  associated  charities,  the 
humane  societies,  and  the  children's  hospitals.  All  of  these  serve 
helpfully  in  behalf  of  endangered,  dependent,  and  delinquent  chil- 
dren. 

California  possesses  at  least  an  average  number  of  day  nur- 
series, settlement  centers,  and  other  agencies  for  the  temporary 
care  of  children  and  incidental  aid  to  their  parents.  Many  such 
organizations  were  visited  when  the  field  work  of  the  study  was 
in  progress,  and  the  names  and  locations  of  others  have  been  fur- 
nished by  the  state  board  of  charities.  There  are  also  special  clubs 
for  both  sexes  which  have  great  influence  on  the  lives  and  develop- 
ment of  the  children  of  the  poor. 

While  these  organizations  usually  assume  no  responsibility 
beyond  a  brief  period  of  care,  they  are  recognized  as  real  child-help- 
ing institutions  and  quite  important  factors  in  child  welfare.  They 
are  frequently  associated  with  corporations  devoted  to  the  more 
permanent  care  of  dependents.  The  relations  which  their  workers 
sustain  to  the  family  life  of  the  children  enable  them  to  acquire 
valuable  information  difficult  for  others  to  obtain,  and  to  intelli- 
gently advise  those  connected  with  other  departments  of  welfare 
work.  It  is  therefore  fitting  that  some,  at  least,  of  these  establish- 
ments should  be  named  and  outlined  here  to  give  them  due  recog- 
nition among  the  child-helping  institutions  of  the  state.  _ 

The  chief  function  of  the  day  nurseries  is  to  care  for  the/ 
infants  and  young  children  of  mothers  who  are  compelled  to  work  | 
away  from  home,  or  are  otherwise  unable  personally  to  care  for/ 
their  children  during  the  day.  Kindergartens  fulfill  in  part  the  i 
same  function,  in  that  they  care  for  children  old  enough  to  receive  j 
instruction.  Frequently  the  day  nurseries  will  have  a  section  for! 
the  babies  and  younger  children,  with  a  kindergarten  fori 
the  older  ones.  Many  are  also  utilized  for  instruction  of  and 
influence  over  parents  and  homes,  especially  in  sanitary  matters) 
and  domestic  science. 

The  clubs  and  settlement  centers  have  varied  lines  of  help- 

i6i 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

fulness  according  to  the  needs  of  the  neighborhood  in  which  they 
are  located.  Some  have  employment  bureaus  and  dispensaries 
as  well  as  social  and  educational  features.  All  are  intended  to 
bring  to  depressed  people  some  alleviation  of  present  ills,  combined 
with  elevating  personal  and  social  influence. 

Most  of  the  organizations  mentioned  were  personally  studied. 
A  few  others  have  sent  written  or  printed  descriptions  of  their 
work.  The  names  and  locations  of  the  remainder  were  furnished 
by  the  state  board  of  charities  and  no  additional  facts  are  available. 
The  various  nurseries,  clubs,  and  other  organizations  are  alphabetic- 
ally arranged  by  location,  without  separation  by  classes. 

1.  Long   Beach    Day  Nursery,   738  American  Avenue,   Long 

Beach. 

2.  Big  Brother  Work,  262  S.  Main  Street,  Los  Angeles 

This  is  a  branch  or  department  of  the  Fisherman's 
Club,  a  religious  organization  for  men.  The  work  is  closely 
associated  with  the  probation  office  of  the  juvenile  court. 

3.  Castelar  Street  School  Day  Nursery,  Los  Angeles 

One  of  the  buildings  of  the  Castelar  Street  School; 
conducted  under  the  auspices  of  the  city  school  department. 
Contains  play  room,  dining  room,  kitchen,  two  sleeping 
rooms,  coat  room,  bathroom,  and  lavatory.  Built  and  con- 
ducted for  the  benefit  of  the  school  children  and  their  im- 
mediate families.  Average  attendance,  30;  largest,  45. 
Children  mostly  of  Italian,  Slavonian,  and  Mexican  parent- 
age. Main  object  to  care  for  young  children  while  mother 
is  away  from  home  working  for  their  support,  in  the  past 
the  older  children  were  kept  out  of  school  to  care  for  their 
smaller  brothers  and  sisters;  now  they  attend  school,  and 
the  little  ones  are  cared  for  here.  All  the  service,  including 
teaching  the  older  children  domestic  science  and  best  ways  to 
care  for  little  folks,  is  free,  as  a  part  of  the  school  system. 

4.  Colored  Children's  Day  Nursery,   1322  Channing  Street, 

Los  Angeles. 

5.  First  Street  School  Day  Nursery,  Los  Angeles 

Located  in  a  rented  cottage  near  the  school.  Estab- 
lished by  the  Parent  Teachers  Association  in  19 10.  Cares 
for  babies  and  children  to  twelve  years.     No  kindergarten. 

162 


Front  View  of  Institution 


Airing  infants  in  the  Patio 
Infant  Shelter,  San  Francisco.     (See  p.  84) 


Sheltered  from  Early  Infancy 


Head  Nurse  and  Sample  Baby 


Sun  Parlor.     UlJ  Sol  Shines  in  on   Ihrce  Sides 
Infant  Shelter,  San  Francisco.     (See  p.  84) 


DAY   NURSERIES    AND    SETTLEMENT   CENTERS 

6,  Ida  Straus  Day  Nursery,  io6i  W.  Temple  Street,  Los  Angeles 

Under  the  auspices  of  the  Los  Angeles  Section  of  the 
Council  of  Jewish  Women.  Cares  for  about  20  children 
per  day.  Present  building  rented.  Will  soon  build  or 
purchase  suitable  plant. 

7.  King's  Daughters'  Day  Nursery,  132  N.  Clarence  Street, 

Los  Angeles 

Established  in  1895.  Fine  building  erected  for  the 
work,  plant  value  ^12,000.  Support  mainly  from  King's 
Daughters.  Average  40  children  a  day.  Receives  babies 
and  children  to  fourteen  years.  Does  also  a  varied  work  of 
child-teaching  and  helping.  Has  in  connection  a  rest  cot- 
tage at  Manhattan  Beach,  where  frail  children  are  taken  for 
sea  air  and  healthful  change.  Rest  cottage  also  used  for 
convalescing  mothers.  Cash  cost  of  work  over  ^2,000  per 
year. 

8.  Pisgah  Home  for  Homeless  Children,  6044  Echo  Street, 

Los  Angeles 

The  Pisgah  Home  movement  is  a  special  religious 
propaganda,  central  in  which  is  belief  in  divine  healing, 
and  with  which  are  connected  free  homes  for  "  the  poor,  the 
cast  out,  the  sick,  and  the  poor  drunkard."  There  is  an 
"ark  of  refuge"  for  homeless  women  and  girls,  a  place  called 
Pisgah  Gardens  for  homeless  consumptives,  and  consider- 
able attention  is  given  to  homeless  children.  The  manager, 
F.  E.  Yoacum,  after  indicating  that  the  average  in  care  is 
about  40,  and  that  over  100  children  were  cared  for  in  191 3, 
says:  "They  are  coming  and  going  continually.  Friends 
come  after  those  here,  others  bring  new  children  in.  Exact 
figures  would  increase  the  number  given."  Cost  of  chil- 
dren's maintenance  over  ^1,200  per  year. 

9,  St.  Anne's  Infant  Asylum,  4599  Marmion  Way,  Los  Angeles 

A  Catholic  day  nursery  under  the  direct  control  and 
management  of  Bishop  Conaty.  Occupies  rented  property. 
Capacity,  15  children.  Those  received  mostly  foundlings. 
Expect  to  erect  institution  for  larger  and  permanent  work. 

163 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

10.  St.  Elizabeth's  Day  Nursery,  135  S.  Anderson  Street,  Los 

Angeles 

Established  in  1909.  Is  nonsectarian  in  management. 
Located  in  rented  property  which  has  been  specially  re- 
modelled for  the  work.  Average  daily  attendance,  65. 
Said  to  be  the  largest  day  nursery  work  in  the  city.  Is  in 
the  industrial  district,  and  the  families  served  are  very  poor. 
But  for  this  aid  the  mothers  would  be  obliged  to  accept 
much  direct  charity.  A  hearty  dinner  furnished  all  children 
each  day,  and  a  supper  at  four  o'clock.  Three  regular 
employes.    Annual  cash  cost  exceeds  $3,600. 

11.  Utah  Street  School  Day  Nursery,  Los  Angeles 

Located  on  the  grounds  of  the  Utah  Street  public 
school;  building,  bungalow  style,  erected  by  the  board  of 
education.  Supported  largely  by  the  Los  Angeles  Fellow- 
ship, a  religious  organization.  Average  number  in  care 
about  25.  Serves  a  large  community  of  foreign  extraction — 
Russian,  Slavonian,  Italian,  Greek,  and  Mexican.  Espe- 
cially devoted  to  the  babies  and  small  children  of  families 
connected  with  the  school,  so  that  the  older  children,  who 
formerly  had  to  stay  at  home  to  care  for  the  little  ones 
while  the  mothers  were  absent  at  work,  may  attend  school 
regularly.  Also  used  to  bring  social  workers  in  touch  with 
the  foreign  people  and  their  unsanitary  homes. 

12.  Day   Nursery   and   Kindergarten,   Eighth  and  Chestnut 

Streets,  Oakland 

Managed  by  Sisters  of  the  Holy  Family  of  the  Roman 
Catholic  church;  convent  at  860  Hayes  Street,  San  Fran- 
cisco. Averages  about  1 50  in  daily  attendance.  One  of  a 
group  of  six  similar  nurseries  under  the  same  management. 
(See  pp.  167  and  168.) 

13.  Pasadena  Day  Nursery,  88  Worcester  Avenue,  Pasadena 

Established,  191 1.  Board  of  15  lady  directors. 
Property  valued  at  5^15,000.  Averages  daily  30  children 
in  care.  Kindergarten  work  in  fine  public  school  only 
half  a  block  away,  the  children  going  to  it  and  returning  to 
the  nursery  as  from  their  own  homes.  Expects  to  add  other 
features  of  settlement  center  work.     Now  aids  mothers  to 

164 


DAY   NURSERIES    AND    SETTLEMENT   CENTERS 

secure  employment.  Monthly  mothers'  dinner  and  council. 
The  children  are  taken  to  the  seashore  one  month  each 
summer,  and  each  mother  has  the  privilege  of  one  week  on 
the  beach  with  her  family,  free  of  cost.  Three  regular 
employes.  Annual  maintenance  about  $3,000. 
14.  Redlands  Day  Nursery,  626  Orange  Street,  Redlands. 

The  Catholic  Humane  Bureau,  with  headquarters  at  San 
Francisco  (described  on  page  67),  and  whose  principal  department 
is  the  child-placing  agency,  is  also  engaged  in  day  nursery,  special 
club,  and  settlement  work.  Two  day  nurseries  are  operated  for  the 
bureau  largely  by  volunteer  ladies  from  the  Catholic  parishes,  in  con- 
nection with  social  settlement  work.  They  are  named  and  located 
as  follows : 

15.  Day  Nursery  and  Free  Kindergarten,  Oakwood  and 

Eighteenth  Streets,  San  Francisco 

Maintains  also  sewing  classes;  advises  in  time  of 
trouble;  does  a  work  of  general  relief.  Average  attend- 
ance, 35.     Small  property;  value  about  $1,000. 

16.  Day  Nursery  and  Free    Kindergarten,  Potrero  Street 

near  Seventeenth  Street,  San  Francisco 

Maintains  also  sewing  classes;  a  mothers'  club  of 
over  50  members;  evening  classes  for  working  girls;  pro- 
vides generally  for  those  in  distress.     Average  attend- 
ance, 25.     Property  value  about  $1,500. 
17.  Columbia  Park  Boys'  Club,  458  Guerrero  Street,  San  Fran- 
cisco 

Founded,  1896.  A  club  for  boys  eight  to  sixteen 
years  old.  Object:  to  give  exercise,  enjoyment,  and  im- 
provement to  boys  who,  under  the  conditions  of  city  life, 
are  in  danger  of  becoming  street  gamins  and  youthful 
criminals.  Really  a  child-helping  institution  of  the  preven- 
tive type.  Music  is  largely  employed.  The  club  band, 
selected  from  the  membership,  makes  tours  to  other  parts 
of  the  country.  Military  drill  is  an  important  part  of  the 
work;  calisthenics,  gymnasium  exercises,  and  athletic  sports 
are  also  employed.  The  boys  are  largely  drawn  from  the 
homes  of  working  people,  those  usually  fairly  well  housed 
and  with  enough  to  eat  and  Vv'ear,  but  denied  many  privi- 

165 


CHILD   WELFARE    WORK    IN    CALIFORNIA 

leges  for  which  boys  long.  Others  are  errand  boys,  paper 
carriers,  and  so  forth.  The  club's  motto  is:  "Clean 
living,  clean  thinking,  clean  sport."  Major  S.  S.  Piexotto, 
the  founder  and  director,  gives  his  services  without  salary. 
Their  property  was  destroyed  by  the  earthquake  and  fire 
in  1906.  New  buildings  erected  in  191 1  at  a  cost  of  ^25,000. 
Annual  cost  of  maintenance  over  $10,000. 

18.  Gladys  Settlement  and  School,   69  Gladys   Street,   San 

Francisco 

Established  for  the  benefit  of  workingmen's  families. 
Two-story  frame  club  house,  10  rooms,  modern;  value 
about  $3,500;  fairly  well  equipped  for  social  welfare  work. 
Clubs  and  classes  for  both  sexes,  nine  to  twenty-one  years. 
Instruction  in  sewing,  cooking,  housekeeping,  and  so  forth. 
Children  from  very  poor  and  ignorant  families.  Average 
in  clubs,  20  boys,  30  girls.  Annual  maintenance  about 
$1,500. 

19.  Good  Samaritan    Day  Nursery,   245   Second   Street,   San 

Francisco 

Under  the  patronage  and  control  of  the  Cathedral 
Mission  of  the  Episcopal  church.  Includes  boys'  club, 
girls'  club,  and  a  free  dispensary.  Also  special  mothers' 
meetings.  Using  temporary  buildings  since  the  fire  of 
1906.  Lot  and  temporary  structures  valued  at  $30,000. 
Day  nursery  cares  for  babies  and  children  to  seven  years. 
Average  attendance,  25  per  day.  Annual  maintenance 
about  $3,600. 

20.  Happy  Day  Home  for  Children,  2560  Hyde  Street,  San 

Francisco 

A  day  nursery  also  carrying  on  social  welfare  work. 

21.  Peoples'  Place,  555  Chestnut  Street,  San  Francisco 

A  social  center  in  the  midst  of  a  needy  multitude  of 
Italians.  Property  valued  at  $33,000.  It  includes  a  val- 
uable tract  of  land,  an  assembly  room,  gymnasium,  and 
several  cottages.  The  work  is  exceedingly  varied.  There 
are  registered  and  in  regular  attendance  about  250  indi- 
viduals, from  small  children  to  adults.  Besides  the  tem- 
porary care  of  little  children  and  numerous  classes  for  them, 

166 


DAY   NURSERIES   AND    SETTLEMENT   CENTERS 

there  are  many  lectures,  festivals,  picnics,  athletic  games, 

and  other  entertainments.     Dr.  Piexotto  of  the  University 

of  California  says:     "The  city  needs  the  Peoples'   Place. 

It  is  located  where  the  neighbors  are  chiefly  Italians,  able 

to  earn  a  living,  but  often  living  in  quarters  too  restricted 

to  afford  opportunity  for  amusement  for  their  children,  or 

for  social  gatherings."    Annual  cost  of  maintenance  about 

^2,000. 

The  Sisters  of  the  Holy  Family  of  the   Roman  Catholic 

church,  whose  convent  is  at  860  Hayes  Street,  San  Francisco, 

make  a  specialty  of  day  nursery  and  kindergarten  work.     They 

have  four  large  and  important  establishments  for  this  service  in 

San  Francisco,  one  in  Oakland  (see  p.  164)  and  one  in  San  Jose 

(see  p.  168).     There  are  about  60  Sisters  engaged  in  this  special 

work.     The  plants   in   San   Francisco  are  the  largest  and  best 

equipped  of  any  on  the  Pacific  coast,  and  the  work  done  is  of  very 

high  quality  and  efficiency.     It  is  estimated  that  the  properties 

used  exceed  ^200,000  in  value.     In    San    Francisco  the  average 

cared  for  exceeds    150  children  at  each  establishment,  or  over 

600  per  day.     Kindergarten  work  and  preliminary  schooling  given 

to  all  old  enough  to  attend.     The  San  Francisco  locations  are: 

22.  Day  Nursery  and  Kindergarten,  860  Hayes  Street. 

23.  Day  Nursery  AND  Kindergarten,  142  i  Powell  Street. 

24.  Day  Nursery  and   Kindergarten,   Eighteenth  and  Pt. 

Lobos  Avenues. 

25.  Day  Nursery  and  Kindergarten,  Greenwich  and  Divisi- 

daro  Streets. 
26.  Telegraph  Hill  Neighborhood  Association,  1734  Stockton 
Street,  San  Francisco 

The  work  includes  a  well  equipped  and  attended  day 
nursery,  five  social  clubs  for  boys  and  one  for  girls,  a  mothers' 
club,  manual  training  shops,  and  a  free  dispensary.  Lo- 
cated in  the  midst  of  a  dense  population  of  which  the  adults 
are  nearly  all  of  foreign  birth.  Many  homeless  and  other- 
wise dependent  children  are  brought  to  the  notice  of  the 
Hill  workers  and  cared  for  by  co-operation  with  other 
agencies. 

167 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

27.  Day  Nursery  and  School,  San  Jose 

Managed  by  the  Sisters  of  the  Holy  Family  of  the 
Roman  Catholic  church,  whose  convent  is  at  860  Hayes 
Street,  San  Francisco.  Averages  about  1 50  in  daily  attend- 
ance, including  babies.  One  of  a  group  of  six  similar 
nurseries  under  same  management.     (See  pp.  164  and  167.) 


168 


CHAPTER   XVIII 
CHILD   RELIEF  AND   PROTECTION 

THERE  are  a  number  of  organizations  and  institutions  in 
California  doing  relief  and  protective  work  for  needy 
children,  but  without  assuming  legal  control  or  care  for 
any  extended  period.  They  are  usually  closely  allied  to  those  giv- 
ing permanent  care  to  homeless  and  dependent  children.  These 
helpful  and  protective  organizations  are  grouped  under  three 
heads — the  Associated  Charities,  the  Humane  Societies,  and  the 
Children's  Hospitals. 

Associated  Charities 

1.  Charity  Organization  Society,  Berkeley 

Reported  by  Stuart  A.  Queen,  secretary  of  the  state 
board  of  charities  and  corrections,  to  have  received  in  191 5 
a  certificate  of  approval  as  a  child-placing  agency.  No 
further  details  available.  As  its  work  on  this  line  is  only 
just  begun  at  this  date  (September,  1915),  the  agency  can 
not  be  included  in  the  statistical  tables. 

2.  United  Charities,  232  N.  Main  Street,  Los  Angeles 

Organized,  1893;  very  recently  entirely  reorganized 
with  a  change  of  name  from  Associated  Charities  to  the 
one  above  given.  Work  for  children  indicated  as  follows: 
"The  only  work  directly  done  for  needy  and  dependent 
children  by  this  organization  is  when  entire  families  are 
aided;  all  cases  of  neglected  or  abused  children  are  at  once 
referred  to  the  Humane  Society,  and  all  cases  of  homeless 
or  abandoned  children  to  the  orphanages  or  the  Children's 
Home  Society  of  California." 

3.  Oakland  Associated  Charities,  512  Broadway,  Oakland 

Organized,  1893.     Does  a  large  and  important  gen- 
eral work  of  investigation  and  aid  of  families.     As  stated 
in  Chapter  VIII,  this  organization  holds  a  certificate  of 
169 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

approval  from  the  state  board  of  charities  as  a  child-placing 
agency  and  cares  for  many  neglected  and  dependent  chil- 
dren, part  of  whom  are  wards  of  the  juvenile  court.  (See 
pages  66  and  71 .)  Total  annual  maintenance  about  $10,000, 
of  which  about  $2,500  are  expended  in  general  aid  to 
needy  families.  The  association  is  also  entrusted  with 
the  expenditure  of  over  $6,000  per  year  for  special 
cases. 

4.  Catholic  Ladies'  Aid  Society  of  Alameda  County,  Oakland 

This  is  not  strictly  an  "associated  charities"  organi- 
zation, but  an  association  of  Catholic  ladies  of  the  various 
Oakland  parishes,  for  efficient  charitable  work.  They  are 
giving  especial  attention  to  the  care  of  children,  and  in 
191 5  received  from  the  state  board  of  charities  a  certificate 
as  a  child-placing  agency.  As  its  work  on  this  line  is  only 
just  begun  at  this  date  (September,  191 5),  the  agency  can 
not  be  included  in  the  statistical  tables. 

5.  Associated  Charities,  1500  Jackson  Street,  San  Francisco 

This  organization  does  a  varied  and  extensive  work 
in  the  way  of  investigation  of  conditions,  aid  to  needy  fam- 
ilies, and  reference  of  cases  to  proper  organizations  and  in- 
stitutions. Also  closely  associated  with  anti-tuberculosis 
clinics  and  propaganda,  and  efforts  to  improve  the  housing 
of  the  poor.  The  Children's  Agency,  an  accredited  child- 
placing  agency  treated  in  Chapter  VI 1 1,  is  a  department  or 
branch  of  this  association,  in  extent  of  work  and  annual 
cost  of  maintenance,  the  agency  has  become  a  very  important 
part  of  the  organization's  activities. 

6.  Associated  Charities,  722  Anacapa  Street,  Santa  Barbara 

Organized,  1899.  Special  work  for  children  includes 
a  neighborhood  house,  an  organization  of  boy  scouts,  and  a 
St.  Aloysius'  Band  containing  59  boys.  Refers  all  cases  of 
needy  or  delinquent  children  to  orphanages  or  the 
juvenile  court.     Annual  cost  of  maintenance  about  $1,500. 

7.  Associated  Charities,  County  Court  House,  Stockton 

Closely  related  to  county  relief  work  and  the  juvenile 
court.  Gives  general  aid  to  families  and  is  the  agency  used 
by  San  Joaquin  County  in  arranging  for  the  care  of  de- 

170 


CHILD    RELIEF    AND    PROTECTION 

pendent  children,  whether  in  private  homes  or  in  institu- 
tions. 
While  associated  charities  are  organized  in  eight  other  cities 
of  the  state,  in  only  the  seven  societies  above  mentioned  does 
there  appear  to  be  any  special  connection  with  work  for  depend- 
ent children.  The  remainder  aid  children  only  in  families  and 
seem  to  do  little  investigation,  case  reference,  or  other  child  wel- 
fare work.  As  reported  by  the  state  board  of  charities  in  July, 
191 4,  the  eight  organizations  of  associated  charities,  other  than 
those  above  noted,  are  located  in  the  following  cities:  Bakersfield, 
Eureka,  Long  Beach,  Pasadena,  Redlands,  Riverside,  San  Diego, 
and  San  Rafael. 

Humane  Societies 

There  are  three  principal  organizations  making  a  specialty 
of  the  legal  and  protective  relations  of  children.  There  may  be 
others,  of  minor  importance,  doing  some  work  along  the  same  lines. 

1.  Fresno  County  Humane  Society,  Fresno 

Organized,  1896.  Object:  to  prevent  cruelty  to 
children,  arrange  for  those  neglected  or  abandoned,  prose- 
cute parties  deserting  families,  and  in  other  ways  to  promote 
the  welfare  of  the  community.  A  minor  part  of  the  serv- 
ice is  to  prevent  cruelty  to  animals.  Rented  offices. 
There  are  three  regular  employes,  besides  nine  field  officers, 
whose  duties  appear  to  relate  only  to  case  service.  The 
society  has  assets  amounting  to  ^5,250.  The  cost  of  main- 
tenance in  191 3  was  ^11,202.  During  the  year  127  cases 
involving  cruelty  to  wives  or  children,  mainly  desertion  or 
failure  of  husbands  and  fathers  to  support  their  families, 
were  prosecuted  in  the  courts;  also  38  cases  of  cruelty  to 
animals.  The  society  is  doing  some  child-placing  in  family 
homes,  although  no  certificate  for  this  work  has  been 
granted  by  the  state  board  of  charities. 

2.  Pacific  Humane  Society,  Pacific  Building,  San  Francisco 

Founded,  1906.  Object:  prevention  of  vice,  and  of 
cruelty  to  children  and  animals.  Rented  offices.  Main 
work,  investigation  of  cases  of  neglect  and  cruelty,  prose- 
cution of  offenders,  and  arrangements  for  the  care  of  chil- 

171 


CHILD   WELFARE    WORK    IN    CALIFORNIA 

dren  concerned.  About  150  cases  in  court  each  year; 
over  400  children  involved.  Fully  100  children  annually 
in  direct  care,  taken  from  unworthy  parents  and  relatives; 
assigned  to  institutions  70,  and  disposed  of  otherwise  about 
30.  Annual  cost  of  maintenance  over  $5,000. 
3.  California  Society  for  the  Prevention  of  Cruelty  to 
Children,  1028  Market  Street,  San  Francisco 

Founded,  1876.  Object:  prevention  of  cruelty  to 
children  and  youth,  and  the  enforcement  of  laws  for  their 
protection.  Claims  to  be  "second  oldest  society  of  the 
kind  in  the  world."  Very  important  prevention  and  pro- 
tective organization.  The  San  Francisco  police  depart- 
ment turns  over  to  this  society  nearly  all  its  cases  involving 
children.  This  society  "is  the  source  of  action  in  the  city 
leading  to  the  majority  of  all  assignments  of  children  to 
institutions."  While  many  cases  of  neglect  or  cruelty  are 
privately  arranged,  all  serious  ones  are  taken  into  the 
police  court,  the  juvenile  court,  or  one  of  the  superior 
courts.  M.  J.  White,  the  secretary  for  over  fifteen  years,  is 
in  point  of  service  the  oldest  executive  officer  of  a  society 
of  this  kind  in  the  United  States.  The  work  for  191 3  in- 
cluded: complaints  received,  2,434;  children  involved,  4,472; 
children  relieved,  2,491;  children  placed  in  institutions, 
124;  assigned  to  home-finding  societies,  371;  placed  in 
families,  34;  returned  to  kin  or  friends,  45;  sent  to  the 
juvenile  court,  863.  Support  is  by  voluntary  contribu- 
tions from  friends  of  the  work.  Cost  of  maintenance  for 
1913  was  $5,576. 

Children's  Hospitals 

The  children's  hospitals  are  the  acme  of  modern  humani- 
tarian effort.  The  part  they  have  played  in  reducing  the  wastage 
of  child  life  in  recent  years  calls  for  special  recognition.  Medical 
and  surgical  skill  here  join  hands  with  tender  nursing  under  the 
most  favorable  sanitary  conditions,  so  that  in  the  lives  of  afflicted 
little  ones  health  and  strength  may  take  the  place  of  disease  and 
weakness. 

While  practically  all  general  hospitals  have  their  maternity 

172 


CHILD    RELIEF    AND    PROTECTION 

and  babies'  wards,  and  there  are  in  the  principal  cities  of  CaU- 
fornia  several  hospitals  devoted  wholly  to  maternity  work,  it  is 
not  proposed  to  designate  or  outline  them  here.  For  present  pur- 
poses mention  is  made  only  of  those  hospitals  whose  ministry 
is  to  sick  and  crippled  children,  especially  the  children  of  the 
poor. 

1.  Children's  Hospital,  Alpine  Street,  Los  Angeles 

Founded,  1901.  Frame  buildings,  including  a  clinic 
cottage  erected  by  the  board  of  education.  Value  of  plant 
about  ^10,000.  Endowment  about  ^20,000.  The  hospi- 
tal also  possesses  a  property  of  large  possibilities  on  Broad- 
way, Los  Angeles;  and  a  site  of  four  acres  at  Hollywood,  a 
suburb  of  the  city,  on  which  buildings  costing  ^50,000  are 
to  be  erected.  Present  plant  has  a  capacity  of  only  40 
beds.  Very  large  dispensary  work  done  for  the  poor. 
Eight  nurses  in  attendance.  Patients  of  all  ages,  from 
babies  a  few  days  old  to  boys  of  twelve  and  girls  of  fourteen 
years.  Pay  cases  not  refused,  but  practically  all  the  work 
is  charity.     Annual  cost  of  maintenance  exceeds  ^20,000. 

2.  Woman's  Alliance  Maternity  Cottage,    127  South  Utah 

Street,  Los  Angeles 

Founded,  1907.  As  its  name  implies,  this  is  not 
strictly  speaking  a  children's  hospital,  but  it  is  so  interwoven 
with  welfare  work  for  children  that  it  is  here  mentioned. 
The  institution  is  surrounded  by  a  large  foreign  population — 
Russian,  Slavonian,  Italian,  Portugese,  and  Mexican — who 
live  in  extreme  poverty.  Mortality  of  mothers  and  small 
children  frightful.  Cottage  acquired  and  fitted  for  mater- 
nity and  dispensary  work,  practically  free  to  women  and 
children  of  the  poor.  Main  building,  two-story  frame 
cottage,  12  rooms,  with  beds  for  eight  maternity  patients; 
bungalow  in  rear  has  sleeping  rooms  for  nurses  and  free 
baths  for  women  and  children.  Has  become  emergency 
hospital  for  children's  cases  throughout  vicinity;  nurses 
also  go  on  emergency  calls  to  nearby  homes  to  give  first 
aid  to  accident  and  sudden  illness  cases  among  children. 
About  100  maternity  cases  annually,  with  several  hundred 
minor  and  emergency  cases.  Practically  all  nursing  and 
173 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

medical  services  donated.     Support  mainly  from  churches. 
Sunshine  Club,  Ebel  Club,  and  so  forth. 

3.  Baby  Hospital  of  Alameda  County,  51st  and  Dover  Streets, 

Oakland 

Founded  in  191 2;  opened  for  service  September  24, 
1 914.  Under  management  of  the  Baby  Hospital  Associa- 
tion. Value  of  plant  and  equipment,  $22,000.  Monthly 
expense  about  §800.  Number  of  regular  employes,  12. 
Receives  beneficiaries  of  both  sexes  from  birth  to  five 
years.  No  color  restrictions.  Up  to  January  5,  191 5, 
had  cared  for  93  children  who  were  disposed  of  as  follows: 
placed  in  families,  2;  returned  to  kin  and  friends,  70;  died, 
9;  remaining  in  hospital  at  date  of  report,  12.  The  presi- 
dent of  the  association,  Mrs.  Duncan  McDuffie,  adds  to 
the  above  facts  these  interesting  particulars: 

The  large  work  of  the  hospital  is  done  by  the  Baby  Clinic 
which  now  cares  for  about  400  children.  These  are  brought  to 
that  department  on  the  hospital  grounds  when  possible,  or  are 
visited  in  their  own  homes  by  visiting  nurses  when  ill.  There 
was  some  question  of  the  necessity  for  a  baby  hospital  before 
our  institution  opened;  there  certainly  can  be  none  now,  for 
the  demands  have  constantly  exceeded  our  ability  to  meet  them. 
One  interesting  development  has  been  the  prenatal  clinic,  under- 
taken to  meet  the  needs  of  ignorant  mothers;  and  the  number 
of  expectant  mothers  who  attend  this  clinic  is  steadily  increasing. 

4,  Holly  Sefton  Memorial  Hospital,  San  Diego 

Erected,  1909.  Not  a  general  hospital  for  children, 
but  a  part  of  the  plant  of  the  San  Diego  Children's  Home 
Association.  Owing  to  the  fact  that  the  children's  home  has 
so  few  cases  needing  treatment  in  hospital  wards,  the  city  is 
offered  the  privilege  of  sending  to  it  any  children  of  the  poor 
for  free  treatment.  Thus  the  hospital  becomes  a  benefac- 
tion to  the  entire  city.  Fine  concrete  building,  Spanish 
style  of  architecture,  with  modern  conveniences  and  sani- 
tary devices.  Furnished  with  every  needed  appliance  for 
the  operating  room  and  after-care  of  patients.  Capacity, 
15   beds.    Value  of  property  exceeds  $10,000.     Mrs.   H. 

174 


Alexander  Maternity  Cottage 


Separate  Pa\iii(in  lur  Contagious  Cases 


Nurses'  Home,  Orthopedic  Building,  Eye  and  Ear  Building 
Special  Buildings,   Hospital  For  Children,  San  Francisco.     (See  p.  175) 


CHILD    RELIEF   AND    PROTECTION 

Sefton,  the  donor,  by  a  sort  of  endowment  provides  for  the 
entire  expense  of  maintenance. 
5.  Hospital  for  Children,  3821  Sacramento  Street,  San  Fran- 
cisco 

Several  fine  buildings  with  every  facility  for  modern 
and  scientific  care  of  all  classes  of  children.  Main  build- 
ing of  brick,  three  stories  and  high  basement,  in  two  sec- 
tions, to  which  another  wing  is  soon  to  be  added.  Modern 
equipment  throughout.  Special  modern  construction  and 
appliances  in  part  erected  in  191 1.  Total  capacity  in 
principal  buildings,  120  beds.  Separate  pavilion  for  con- 
tagious cases.  Four  smaller  structures  now  used  for  a 
maternity  cottage,  eye  and  ear  cases,  orthopedic  work,  and 
a  nurses'  home. 

These  related   buildings  with  their  skilled  and  de- 
voted staff  of  specialists  form  one  of  the  finest  children's 
hospitals  in  the  United  States  and  would  be  a  credit  to  any 
city.     Mostly  serve  pay  patients,  but  hospital  is  generously 
open  to  large  numbers  of  the  poor  without  cost,  making  it  a 
special   charity.     Gives  accommodations   and   service  es- 
pecially to  dependent  children  from  the  Children's  Agency 
and  the  various  orphanages  and  homes.     Hospital  always 
crowded  and  doing  very  valuable  work. 
Special    mention   should  be  made  of  the  children's  clinics 
held  in  several  of  the  San  Francisco  general  hospitals,  in  each  case 
almost  adding  a  children's  hospital  to  the  above  list.     By  means 
of  these  clinics  free  medical  and  surgical  help  is  given  annually 
to  many  hundreds  of  poor  children,  largely  of  foreign  extraction. 
These  free  clinics,  to  which  in  many  cases  requiring  it  free  ward 
service  is  added,  are  maintained  at  Lane  Hospital,  Mary's  Help, 
Mount  Zion  Hospital,  and  the  University  of  California  Hospital. 


175 


PART  FOUR 
ANALYSIS  AND  ELEMENTS  OF  PROGRESS 


And  some  were  orphans,  and  athirst 

For  sweet  home  love  and  life. — E.  H.  Exon. 

Home  is  the  hub  of  all  good  influences  in  this  country.  The  creation 
of  a  new  family  home  means  the  establishment  of  a  new  center  of  faith, 
hope,  love,  morality,  and  patriotism. — Anon. 

To  know,  love  and  serve  childhood  is  the  most  satisfying  and  soul- 
filling  of  all  human  activities.  It  rests  on  the  oldest  and  strongest  and 
sanest  of  all  instincts.  It  gives  our  lives  a  rounded  out  completeness  found 
in  no  other  service.  No  other  object  is  so  worthy  of  service  and  sacrifice, 
and  the  fullness  of  the  measure  in  which  this  is  rendered  is  the  very  best 
test  of  a  nation,  of  a  race,  or  of  a  civilization. — G.  Stanley  Hall. 

In  preventive  salvation  supreme  emphasis  must  be  placed  upon 
guarding  the  sources  of  life.  We  discover  in  practical  social  work  today 
that  the  environment  sources  are  as  important  as  the  hereditary,  if  not  more 
so.  Some  social  workers  with  long  experience  in  the  field  claim  that  envi- 
ronment is  about  nine-tenths  of  destiny.  We  know  from  actual  facts 
in  the  treatment  of  orphans  and  neglected  children  that  environment  is 
at  least  eighty-five  per  cent  of  the  battle  for  good  citizenship.  The  modi- 
fication of  environment  is  one  of  the  most  important  methods  used  by  modem 
social  science  in  the  improvement  of  the  race. — Prof.  J.  E.  Earp. 

Better  parental  training  is  the  best  preventive  measure.  To  inspire 
and  enforce  it,  and  to  so  train  parents  that  they  can  wisely  train  their 
children,  should  be  the  aim  of  all  good  people.  Keep  the  child  in  close 
touch  with  its  parents,  and  insist  that  they  guard  carefully  the  unfolding 
life.  The  devil  is  a  busy  fellow,  very  persevering,  and  begins  his  work  on 
the  child  at  the  dawn  of  consciousness;  hence  we  would  have  all  parents 
alert  and  resourceful,  determined  by  precept  and  example  to  develop  in  the 
child  right  action  and  noble  character.  We  would  have  the  parents  teach 
the  child  to  rely  on  Divine  help  and  guidance,  and  emphasize  and  illustrate 
the  beauty  and  usefulness  of  lives  devoted  to  the  service  of  God  and  human- 
ity. So  cared  for,  taught  and  trained,  there  would  be  very  few  defective 
or  delinquent  children,  and  even  the  numbers  of  dependents  would  be  exceed- 
ingly small. — Rev.  William  Q.  Bennett. 


CHAPTER  XIX 
CHILD-PLACING  IN  FAMILIES 

IT  is  generally  taken  for  granted  that  child  welfare  work  is  a 
recent  development  in  western  civilization.  Such  an  infer- 
ence can  hardly  be  accepted  by  the  student  of  history. 
Sympathy  for  orphan  and  dependent  children  did  not  originate 
with  our  Puritan  fathers,  and  systematic  relief  of  those  abandoned 
and  destitute  long  antedates  the  discovery  of  America.  In  fact, 
child  welfare  work  can  be  traced  back  through  the  middle  ages 
to  the  very  beginning  of  the  Christian  era,  and  formal  enactment 
and  national  practice  related  to  parentless  and  unfortunate 
children  were  matters  of  record  nearly  3,500  years  ago. 

It  is  among  the  Israelites,  under  the  law  of  Moses,  from  the 
very  beginning  of  their  national  life,  that  we  find  the  first  historical 
record  of  child  welfare  work,  and  it  is  the  only  careful  and  definite 
provision  for  orphan  and  other  needy  children  recorded  by  any 
nation  of  the  ancient  world.  Except  for  certain  details  of  action 
and  methods,  the  care  of  dependent  children  by  the  ancient 
Hebrews  would  fit  well  into  the  scheme  for  such  activities  in  modern 
and  progressive  America.  The  Jews  have  been  active  child  welfare 
workers  longer  than  any  other  people  of  history. 

Away  back  in  the  times  of  the  patriarchs  the  fatherless, 
the  widow,  and  the  stranger  were  given  the  excess  fruits  of  the 
harvest.*  The  people  were  told  that  God  is  the  father  of  orphans 
and  that  the  Divine  bounty  must  be  shared  with  them.f  Every 
third  year  especial  feasts  were  held  in  their  dwelling  places  and  the 
strangers,  the  widows,  and  the  orphans  were  invited.!  There 
were  special  laws  to  guard  the  inheritance  of  orphans,  and  other 
enactments  to  provide  for  abandoned  and  foundling  children. 
It_^was  required  that  children  lacking  parental  care  should  be 

*Deut.  XXIV:  21. 
t  Psalm  LXVIIl:  5. 
JDeut.  XIV:28,  29;  XXVI:  12,  13. 

179 


CHILD   WELFARE    WORK    IN    CALIFORNIA 

made  members  of  the  households  of  other  relatives,  who  must 
train  them  up  for  eificient  adult  life.  According  to  the  Talmud, 
the  custom  in  regard  to  foundlings  was  that  each  such  child  was 
taken  into  the  home  of  a  childless  couple,  who  brought  it  up  as 
their  own. 

This  elevated  religious  view  of  child  welfare  work,  and  these 
definite  and  practical  laws  and  methods,  were  inaugurated  near 
the  dawn  of  history,  and  have  been  the  basis  of  unbroken  national 
and  racial  practice  for  3,500  years.  Child-caring  work  is  therefore 
not  a  new  thing  under  the  sun,  and  the  ancient  Jewish  method 
of  caring  for  dependent  children  in  foster  homes  may  well  be 
counted  the  prototype  of  all  home-finding  work  in  later  ages. 

Christianity  is  the  enriched  and  glorified  continuation  of 
the  faith  and  practices  of  the  ancient  Hebrews.  Many  of  the 
early  Christians  were  Jews  who  accepted  Jesus  as  the  Messiah 
of  the  Hebrew  prophets.  These  brought  into  the  Christian 
churches  and  communities  the  laws  and  ideas  relating  to  dependent 
children.  Then  because  of  the  great  need  which  soon  arose  on 
account  of  the  martyrdom  of  many  Christians,  and  the  immense 
increase  of  orphans  and  the  needy  children  of  imprisoned  parents, 
the  work  was  greatly  enlarged  and  new  methods  inaugurated. 

For  nearly  two  centuries  child-placing  continued  as  under 
the  Jewish  laws  and  customs.  It  also  became  customary  for  the 
bishops  to  place  orphan  and  other  destitute  children  in  the 
care  of  selected  widows  at  the  expense  of  the  church,  thus  inaugu- 
rating the  equivalent  of  the  boarding-out  system  of  modern 
societies. 

Eusebius,  a  third  century  writer,  gives  several  historical 
references  to  the  earlier  and  once  universal  method  of  child- 
placing  in  families.  In  the  Apostolic  constitutions,  compiled 
by  Clement  of  Rome  in  the  fourth  century,  is  this  suggestive 
passage:  "If  any  Christian  boy  or  girl  be  left  an  orphan,  it  is 
well  if  one  of  the  brethren,  who  has  no  child,  receives  and  keeps 
him  in  a  child's  place.  They  who  do  so  perform  a  good  work  by 
becoming  fathers  to  the  orphans,  and  will  be  rewarded  by  God  for 
this  service."* 

*  Uhlhorn,  Gerhard:  Christian  Charity  in  the  Ancient  Church,  p.  186.  New 
York,  Scribner,  1883. 

180 


CHILD-PLACING    IN    FAMILIES 

The  ecclesiastical  and  other  records  show  that  near  the  close 
of  the  second  century  the  child-placing  method  either  proved  insuf- 
ficient, or  child-care  in  institutions  was  begun  because  of  the 
prevalence  of  institutionalism  on  other  lines.  From  this  time 
down  the  centuries  to  the  later  modern  period,  child-placing  in 
families  became  secondary  to  institutional  care,  but  was  never 
entirely  abandoned. 

Beginning  near  the  close  of  the  second  century,  the  Christian 
church  added  to  its  child-placing  work  asylums  for  orphan  and 
other  dependent  children.  The  described  methods  for  the  care 
of  orphans,  and  the  courses  of  training  required  for  them  in  the 
writings  of  sixteen  or  seventeen  centuries  ago  would  be  creditable 
if  practiced  by  similar  institutions  today. 

With  the  growth  of  monasticism  came  an  immense  increase 
in  institutions  of  all  kinds — monasteries,  convents,  hospitals, 
homes  for  the  aged,  and  orphanages.  The  records  of  the  sixth 
century  contain  the  first  reference  to  a  foundling  asylum,  as  dis- 
tinct from  the  general  orphanage.  In  several  European  countries 
the  foundling  asylum.s  as  well  as  the  general  orphanages  increased 
rapidly  after  the  seventh  or  eighth  century,  coming  to  the  maximum 
in  the  eighteenth  century,  especially  in  Italy,  Austria,  and  France. 
Always  in  connection  with  these  institutions  mention  is  made  of 
placing-out  children  in  families. 

It  need  scarcely  be  said  that  when  America  was  settled 
from  the  lands  across  the  sea,  the  people  brought  with  them  the 
age-old  ideas  there  prevalent  in  regard  to  child  life  and  the  care  of 
dependent  children.  What  we  have  in  this  country  is  a  growth 
and  development  based  upon  the  original  methods  of  our  emigrant 
ancestors. 

In  Massachusetts  the  English  stock  and  ideas  were  dominant. 
The  colony  in  1660  enacted  laws  providing  for  the  apprenticing 
of  orphans  and  homeless  children  to  reputable  citizens.  In  this 
legislation  the  relation  of  master  and  servant  was  made  prominent, 
and  the  rights  of  the  children  were  not  adequately  safeguarded. 
Nevertheless,  under  this  early  official  child-placing  system  thou- 
sands of  waifs  and  orphans  found  entrance  into  good  family 
homes  and  grew  up  to  be  useful,  self-supporting  citizens. 

The    Massachusetts    indenture  system,   or  one   of   similar 

181 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

character,  under  which  boys  and  girls  were  "  bound  out,"  spread 
to  most  of  the  other  colonies,  especially  in  the  north.  As  the 
years  passed  the  laws  were  modified  for  the  benefit  of  the  "bound- 
out"  children,  and  have  almost  entirely  lost  their  original  charac- 
ter in  most  of  the  commonwealths.  A  few  instances  of  this  out- 
grown and  discarded  method  of  child-placing  may  still  be  found 
in  unprogressive  counties  of  the  older  states. 

The  first  formal  use  of  an  organized  agency  for  systematic 
child-placing  in  America  dates  from  the  middle  of  the  nineteenth 
century.  The  Children's  Aid  Society  of  New  York  was  organized 
in  1853  to  send  children  into  family  homes  with  little  or  no  pre- 
liminary care.  This  new  departure  emphasized  the  use  of  the 
family  home  as  a  substitute  for  institutions  in  providing  for  all 
sorts  of  dependent  and  neglected  children.  Charles  Loring  Brace 
through  this  society  became  the  pioneer  of  the  modern  system  of 
child-placing  in  family  homes. 

While  Mr.  Brace  inaugurated  the  systematic  placement  of 
dependent  children  in  free  homes  as  members  of  the  family,  the 
Massachusetts  State  Board  of  Charity  originated  the  boarding-out 
of  such  children  in  families  at  public  expense.  In  1868  this  board 
established  a  boarding-out  system  for  infants  and  other  neglected 
children,  which  soon  became  popular  and  rapidly  expanded.  It 
is  now  practiced  by  the  state,  the  city  of  Boston,  and  various 
private  societies  in  Massachusetts.  Boarding-out  is  done  in  close 
connection  with  placing  in  free  homes  and  no  accurate  separate 
statistics  are  available.  About  30  per  cent  of  the  children  placed 
by  the  city  of  Boston  are  in  free  homes,  and  the  ratio  would 
probably  hold  for  state  and  private  placing-out  work.  It  is  esti- 
mated that  over  10,000  Massachusetts  children  are  now  under 
care  in  free  or  boarding  homes  at  an  aggregate  cost  of  at  least 
a  million  dollars  a  year. 

The  boarding-out  system  is  now  practiced  in  several  other 
states.  The  Children's  Aid  Society  of  Pennsylvania  and 
county  children's  aid  societies  in  that  state  have  in  the  aggregate 
about  2,000  children  on  board,  the  expense  of  whose  care  is  partly 
paid  by  the  various  counties  and  partly  by  the  donations  of  private 
individuals.  The  Children's  Agency  of  San  Francisco,  whose 
work  was  definitely  mentioned  in   Chapter  VIII,   transplanted 

182 


CHILD-PLACING    IN    FAMILIES 

the  method  to  the  Pacific  coast,  and  has  several  hundred  dependent 
children  under  its  charge,  on  board  in  private  famiHes,  the  expense 
being  met  from  county  funds.  The  Cathohc  Humane  Bureau 
and  the  Eureka  Benevolent  Society,  both  of  San  Francisco,  and 
also  described  in  Chapter  VIII,  are  doing  similar  work  for  depend- 
ent Catholic  and  Jewish  children.  In  the  states  named,  Massa- 
chusetts, Pennsylvania,  and  California,  and  in  the  District  of 
Columbia,  the  boarding-out  system  rivals  and  in  part  displaces 
the  original  form  of  child-placing  in  free  homes. 

The  child-helping  societies  of  the  United  States,  as  agencies 
for  the  temporary  or  permanent  placement  of  children  in  private 
families,  of  which  the  Children's  Aid  Society  of  New  York  was  the 
pioneer,  have  multiplied  to  hundreds  in  the  last  half  century. 
Dr.  Hastings  H.  Hart,  in  Preventive  Treatment  of  Neglected 
Children,  enumerates  107  societies  of  this  class,  and  undoubtedly 
many  have  been  organized  in  the  last  five  years.*  Practically  all 
of  them  place  orphan  and  other  needy  children  in  selected  homes 
as  permanent  members  of  families,  and  only  a  small  part  as  yet 
use  the  boarding-out  system  for  the  children  in  their  care. 

Probably  the  most  extensive  and  important  group  of  these 
agencies  is  the  National  Children's  Home  and  Aid  Society,  a  federa- 
tion of  over  30  state  societies  located  in  nearly  all  parts  of  the  United 
States,  but  much  the  strongest  in  the  northern  section.  This  fed- 
eration began  in  1883  in  Illinois,  in  a  single  organization  under  the 
name  of  the  American  Educational  Aid  Association.  After  a  few 
years  the  name  was  changed  to  Children's  Home  Society.  The 
movement,  which  was  of  independent  origin,  but  based  on  essen- 
tially the  same  ideas  as  led  to  the  organization  of  the  Children's  Aid 
Society  of  New  York,  soon  spread  to  other  states,  first  to  those 
near  Illinois  and  later  to  all  parts  of  the  country.  The  national 
federation  mentioned  followed.  Most  of  these  societies  stand 
ready  to  take  up  the  case  of  any  child  in  trouble,  and  seek  to 
solve  the  problems  related  to  its  welfare.  All  or  nearly  all  of  them 
have  as  their  main  or  central  work  the  placing  of  orphans,  aban- 
doned, or  other  dependent  children  in  free  family  homes.     The 

*  Hart,  Hastings  H.:  Preventive  Treatment  of  Neglected  Children.  Russell 
Sage  Foundation  Publication.     New  York,  Charities  Publication  Committee,  1910. 

183 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

Children's  Home  Society  of  California,  treated  in  Chapter  VI 11, 
is  a  member  of  this  federation. 

While  the  placing  of  children  in  family  homes  is  mainly 
in  the  hands  of  these  child-placing  agencies,  placing-out  is  also 
done  as  an  incidental  work  by  nearly  all  child-caring  institutions; 
and  more  or  less  freely  by  many  juvenile  courts,  humane  societies, 
associated  charities,  directors  of  the  poor,  hospital  people,  lying- 
in-home  keepers,  baby  farmers,  midwives,  and  physicians. 

If  in  some  localities  child-placing  has  been  in  bad  repute,  the 
probability  is  that  the  reason  may  be  found  in  the  unauthorized 
and  unsystematic  methods  employed.  The  fault  is  not  in  the 
plan  itself,  but  in  the  imperfect  working  of  it.  Poor  placing-out 
gives  uncertain  and  often  exceedingly  bad  results.  Good  placing- 
out  gives  almost  uniformly  excellent  results.  Individuals  and 
unauthorized  executives,  and  all  officials  not  so  situated  that  they 
can  do  the  work  in  a  proper  way,  should  be  forbidden  by  law  to 
engage  in  child-placing.  All  placing-out  in  families  should  be 
done  by  authorized  agencies  or  institutions,  duly  licensed,  under 
positive  obligation  to  do  work  of  high  quality. 

To  put  the  requirements  of  placing-out  in  a  single  sentence, 
it  should  be  done  by  agencies  or  institutions  only  after  thorough 
investigation  of  the  applicant,  his  home  and  its  environment; 
the  child  should  be  just  as  thoroughly  studied  and  carefully  fitted 
into  the  new  relationships  and  location;  and  both  the  home  and 
the  child  should  be  kept  under  personal  and  adequate  supervision 
until  the  latter  receives  legal  adoption  or  attains  legal  age. 

Standards  of  Children's  Agencies 

The  authorizing  and  supervising  body,  in  California  the 
state  board  of  charities,  should  be  exceedingly  careful  and  syste- 
matic in  passing  upon  applications  for  recognition  as  agencies  or 
institutions  for  child-placing  or  to  give  continued  care  to  dependent 
or  neglected  children.  In  view  of  the  fact  that  California  now 
has  an  excessive  number  of  organizations  in  proportion  to  popu- 
lation, approval  of  new  ones  should  be  given  only  when  they  can 
give  the  state  board  satisfactory  assurance  on  the  following  points: 

I .  The  present  and  abiding  need  of  the  proposed  agency  or 
institution.  ' 

184 


CHILD-PLACING    IN    FAMILIES 

2.  The  good  character  and  intentions  of  the  appHcants. 

3.  That  the  agenc}^  or  institution  will  be  adequately  financed 
to  do  effective  work. 

4.  That  capable  trained  or  experienced  workers  will  be 
employed. 

5.  That  the  methods  to  be  used  and  the  disposition  to  be 
made  of  the  children  will  be  wise,  altruistic,  judicious,  and  in 
accord  with  the  welfare  of  society. 

6.  That  there  is  a  probability  of  permanence  in  the  proposed 
child  welfare  agency  or  institution. 

Child-caring  institutions  will  always  be  needed  for  the 
temporary  care  of  all  classes  of  dependents,  and  for  the  continued 
care  of  the  specially  wayward,  the  mentally  subnormal,  and  the 
physically  defective.  But  for  the  vast  majority  of  normal  chil- 
dren who  are  homeless,  the  foster  home  is  the  best  possible  place. 
Some  will  need  care  for  definite  limited  periods,  afterwards  to 
be  restored  to  relatives,  and  in  such  cases  the  boarding-out  plan 
should  be  adopted.  Those  permanently  homeless  should  gener- 
ally go  into  free  homes  at  as  early  an  age  as  possible,  to  be  reared 
as  members  of  the  family.  Thus  a  field  and  a  work  are  given  to 
every  worthy  institution  and  agency  and  all  can  labor  together 
to  secure  the  welfare  of  the  children  served. 

As  C.  E.  Faulkner,  superintendent  of  the  Washburn  Memo- 
rial Asylum  of  Minneapolis,  has  well  said: 

It  is  not  necessary  to  discuss  the  place  of  the  society  and  the  place 
of  the  institution  in  child-helping  service,  or  to  encourage  criticism  which 
serves  no  good  purpose.  It  is  enough  to  say  that  there  is  a  place  and  a 
work  for  every  society  and  every  institution  engaged  in  work  with  and  for 
children,  not  afraid  of  public  official  scrutiny  concerning  resources, 
methods  and  accomplishments.  For  others  than  these  there  ought  to 
be  no  place  in  any  state.* 

*  Faulkner,  C.  E.:  Dependent  and  Neglected  Children.  National  Con- 
ference of  Charities  and  Correction.     Proceedings,  19 12,  p.  79. 


185 


I 


CHAPTER  XX 
CALIFORNIA  FOSTER  HOMES 

N  the  Conclusions  of  the  celebrated  White  House  Conference, 
held  in  January,  1909,  is  the  suggestive  statement: 


As  to  the  children  who  for  sufficient  reasons  must  be  removed  from 
their  own  homes,  or  who  have  no  homes,  it  is  desirable  that,  if  normal  in 
mind  and  body  and  not  requiring  special  training,  they  should  be  cared 
for  in  families  whenever  practicable.  The  carefully  selected  foster  home  is 
for  the  normal  child  the  best  substitute  for  the  natural  home.  Such  homes 
should  be  selected  by  a  most  careful  process  of  investigation,  carried  on  by 
skilled  agents  through  personal  investigation  and  with  due  regard  to  the 
religious  faith  of  the  child.  After  children  are  placed  in  homes,  adequate 
visitation,  with  careful  consideration  of  the  physical,  mental,  moral,  and 
spiritual  training  and  development  of  each  child  on  the  part  of  the  respon- 
sible home-finding  agency,  is  essential.  * 

In  his  book  on  Preventive  Treatment  of  Neglected  Children, 
Dr.  Hart  says: 

No  intelligent  student  of  dependent  childhood  can  overlook  the 
fact  that  the  trend  of  public  opinion  and  the  tendency  in  practice  is  away 
from  the  plan  of  bringing  up  children  in  institutions  and  in  favor  of  the 
largest  possible  use  of  the  family  home  as  the  natural  and  divinely  estab- 
lished institution  for  the  homeless  child,  f 

The  spirit  indicated  in  these  two  quotations  prevails  to  a 
large  extent  among  the  best  people  of  California.  Yet  because  of 
the  many  orphanages  and  homes  in  existence,  some  of  them  with 
over  half  a  century  of  history,  and  because  of  the  influence  they 
and  their  advocates  exert,  the  majority  of  che  citizens  are  inclined 
to  be  conservative  and  to  give  a  loyal  and  liberal  support  to  the 
institutions  without  definitely  antagonizing  the  later  and  now 
widely  accepted  method  of  child-care. 

*  Conference  on  the  Care  of  Dependent  Children,    1909.     Proceedings,  p. 
193.     Washington,  Government  Printing  Office,  1909. 
t  Hart,  op.  cit.,  p.  69. 

186 


CALIFORNIA    FOSTER    HOMES 

There  are  also  earnest  and  vigorous  advocates  of  institu- 
tional care.  As  reasons  for  the  multipHcation  of  orphanages  and 
homes,  and  the  long  continued  care  of  orphans  and  other  depend- 
ents, they  say  in  substance:  The  conditions,  especially  in  the 
rural  regions  of  California,  are  different  from  those  east  of  the 
Rockies.  The  population  is  newly  settled  and  too  poor  to  provide 
good  homes;  or  if  in  old  settled  districts  too  changeable  and,  at 
any  rate,  too  selfish  and  grasping  to  take  strange  children  from 
motives  of  humanity  and  make  them  real  members  of  their  own 
families.  So,  as  those  who  can  and  will  take  children  to  raise  do 
so  from  selfish  and  usually  financial  motives,  and  will  not  care  for 
them  as  their  own,  it  is  better  to  keep  dependents  in  institutions. 

To  verify  or  disprove  this  statement  and  accurately  ascertain 
the  character  and  condition  of  California  families,  was  exceedingly 
important.  Therefore  a  portion  of  the  work  done  in  making  a 
survey  of  the  state  was  the  visitation  of  many  family  homes. 

Lists  were  secured  from  the  child-placing  agencies,  both  of 
homes  already  filled  and  of  applications  simply  approved;  and  of 
both  town  and  country  people,  as  well  as  of  varied  nationalities, 
occupations,  and  social  position.  These  homes  were  located  in 
many  different  counties,  so  as  to  cover  practically  all  the  general 
conditions  of  the  population;  and  usually  included  all  the  homes 
to  which  the  agency  was  related  in  that  part  of  the  state,  to  avoid 
seeing  only  a  selected  best  class  of  foster  parents. 

About  100  homes  were  visited.  Some  of  these  foster  homes 
had  children  adopted  or  taken  for  adoption.  Others  had  children 
taken  to  care  for  until  grown,  but  as  members  of  the  family.  The 
remainder  had  children  either  as  free  boarders  for  temporary  care 
or  as  pay  boarders  for  some  charitable  agency.  The  applicants 
whose  homes  were  visited,  and  who  as  yet  had  no  children  in  their 
care,  desired  them  in  one  or  the  other  of  these  ways.  The  writer 
accompanied  workers  of  the  child-placing  agencies  in  the  ordinary 
course  of  their  duties  in  this  visitation,  so  the  homes  were  average 
and  not  specially  selected.  Of  the  loo  homes  thus  visited  only 
five  or  six  were  below  a  fair  grade,  and  all  the  others  would  be  con- 
sidered suitable  for  such  service  in  eastern  states. 

In  order  to  illustrate  the  work  being  done,  and  to  show  the 
possibilities  of  non-institutional  care,  lo  family  homes  are  here 

187 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

outlined.  Three  are  boarding  homes,  of  which  several  hundred  are 
now  being  used  by  the  Catholic  Humane  Bureau,  the  Children's 
Agency,  and  the  Oakland  Associated  Charities;  and  the  other 
seven  are  permanent  foster  homes  used  by  three  different  placing- 
out  agencies. 

1.  A  boarding  home  used  by  the  Oakland  Associated  Charities. 
Mr.  and  Mrs.  L.  fine  American  people,  about  40  years  old.  Mr.  L.  a 
carpenter.  Mrs.  L.  one  of  those  women  always  helping  somebody.  Both 
members  of  Methodist  Episcopal  church.  Own  good  two-story  house, 
seven  rooms,  value  $3,000,  in  good  residence  section  of  Oakland.  No 
children  of  their  own.  Have  in  care  two  brothers,  20  months  and  three 
years  old,  for  which  they  are  paid  $\2  each  per  month. 

2.  A  boarding  home  used  by  the  Children's  Agency  of  San  Fran- 
cisco. Mrs.  K.,  age  about  50,  and  daughter,  age  about  17,  Irish,  members 
of  Roman  Catholic  church.  Daughter  works  downtown;  mother  does 
some  dressmaking  and  needs  more  work  to  keep  her  busy  and  more  money 
to  complete  adequate  support.  Own  neat  five-room  cottage,  fair  location, 
value  $1,500,  in  good  section  of  San  Francisco.  Boards  three  boys,  two 
of  whom  are  three  years  each,  and  one  four  years  old.  Receives  $1 1  per 
month  for  each  child. 

3.  A  boarding  home  used  by  the  Catholic  Humane  Bureau  of  San 
Francisco.  Mrs.  M.,  age  about  45  years,  is  Irish  and  a  member  of  Roman 
Catholic  church.  No  children.  Roomy,  second-story,  rented  flat  in 
San  Francisco.  Furnishings  cheap  and  gaudy.  Apartment  cluttered  but 
clean.  Has  baby,  Rosie,  age  one  week,  taken  from  the  Babies'  Aid.  Child 
well,  clean,  nicely  cared  for.     Receives  $12  per  month. 

4.  A  "free  home"  used  by  the  Children's  Agency  of  San  Francisco. 
No  board  paid;  placement  probably  permanent.  Mr.  and  Mrs.  S.,  good 
average  people,  man  German,  woman  American,  age  about  30  years. 
Residence  at  San  Jose.  Mr.  S.,  brakeman  on  Southern  Pacific  Railroad; 
wages  about  $100  per  month;  steady  and  economical.  Mrs.  S.  a  nice 
appearing,  intelligent  woman.  Both  members  of  Methodist  Episcopal 
church.  Have  neat,  well  furnished,  rented  cottage  of  five  rooms.  Took 
baby  Edna  when  five  weeks  old.  Child,  when  visited,  nine  months  old, 
hearty,  attractive,  and  greatly  loved.  Adoption  not  yet  completed,  but 
desired. 

5.  A  "free  home"  used  by  the  Infant  Shelter  of  San  Francisco.  Mr. 
and  Mrs.  S.  American  people,  age  about  40  years.  Mr.  S.  a  policeman. 
Mrs.  S.  a  bright,  motherly  woman,  and  member  of  Protestant  Episcopal 
church.     Live  at  Marysville.     Rented  house,  well  furnished,  neat  and 

188 


CALIFORNIA    FOSTER    HOMES 

attractive.  No  children  of  their  own.  Have  taken  two,  a  boy  of  lo 
years  and  a  girl  of  8  years,  brother  and  sister,  children  of  a  relative.  Both 
attend  school  regularly,  have  excellent  care,  nice  clothing,  and  much  love. 
Not  adopted. 

6.  A  prospective  foster  home;  application  received  by  Children's 
Home  Society  of  California.  Mr.  and  Mrs.  N.,  age  36  and  30  years,  both 
American.  Mr.  N.  a  clerk  in  a  grocery.  Mrs.  N.  a  good  housekeeper. 
Both  members  of  church.  Reside  at  Chico.  Own  neat  bungalow  cottage 
on  good  lot;  value,  $2,500.  Stand  high  in  community.  Have  no  children, 
although  married  ten  years.  Want  girl  baby.  Approved  by  above 
Society,  and  to  be  given  first  available  child. 

7.  A  "free  home"  used  by  the  Children's  Home  Society  of  Cali- 
fornia. Mr.  and  Mrs.  W.,  ages  35  and  30  years,  American.  Mr.  W.  a 
farmer;  also  runs  a  blacksmith  shop.  Mrs.  L.  a  fair  housekeeper.  Both 
members  of  Baptist  church.  Reside  on  ten-acre  farm  one  mile  from  Red 
Bluff.  Home  comfortable.  Family  well  respected.  Have  a  son,  nine 
years  old.  Have  taken  six-year  old  girl,  Laura,  from  society.  Seems  a 
delightful  child,  loving,  obedient  and  already  helpful.  Attends  school 
with  the  boy.     Will  probably  not  be  adopted. 

8.  A  "free  home"  used  by  the  Children's  Home  Society  of  Cali- 
fornia. Mr.  and  Mrs.  L.,  American,  about  50  and  45  years  old.  Mr.  L. 
a  farmer  and  mail  carrier.  Mrs.  L.  a  pleasant,  kindly  woman;  good 
housekeeper.  Members  of  Methodist  Episcopal  church.  Reside  one  and 
a  half  miles  from  Sheldon,  California,  on  twenty-acre  farm;  value,  $3,000. 
Neat  six-room  house.  Have  daily  paper,  books,  pictures,  and  so  forth. 
Mr.  L.  said  to  be  "one  of  the  best  men  in  the  community."  No  children  of 
their  own.  Have  taken  ten-year  old  girl,  Mabel.  Extra  bright,  ahead  of  most 
children  of  her  age  in  school.  Is  great  talker,  has  high  temper,  but  is  very 
loving,  helpful,  and  happy.     Not  adopted,  but  to  be  reared  to  womanhood. 

9.  A  "free  home"  used  by  the  Children's  Home  Society  of  Cali- 
fornia. Mr.  and  Mrs.  O.,  about  fifty  years  of  age,  English  people.  Mr. 
O.  cultivates  several  lots  in  outskirts  of  town,  and  is  janitor  of  a  bank. 
Mrs.  O.  a  fair  housekeeper.  Both  members  of  Methodist  Episcopal 
church.  South.  Reside  edge  of  Ukiah,  California,  and  have  comfortable 
five-room  house  on  half-acre  tract,  and  three  lots  besides;  value,  $2,000. 
Well  furnished,  old-fashioned  home.  Plain,  honest,  careful  man;  indus- 
trious, capable  woman.  No  children  of  their  own.  Have  taken  three- 
year-old  boy  from  society.  A  fairly  attractive  child,  somewhat  frail  and 
backward  for  his  age.     Will  adopt  soon  as  probation  expires. 

10.  A  "free  home"  used  by  the  Children's  Home  Society  of  Cali- 
fornia.    Mr.  P.,  age  about  55,  and  sister  somewhat  younger,  Irish;  mem- 

189 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

bers  of  Roman  Catholic  church.  Mr.  P.  farms.  Miss  P.  keeps  his  home. 
Reside  ten  miles  over  the  mountains  from  Nevada  City,  California. 
Ranch  of  over  400  acres,  40  acres  in  cultivation,  balance  in  pasture. 
Five-room  house,  common  but  comfortable.  Well  recommended  by  parish 
priest  and  county  superintendent  of  schools.  Has  taken  Patrick,  boy 
of  13  years.  Patrick's  mother  is  dead  and  he  was  deserted  by  his  father. 
Now  seems  happily  located  in  this  mountain  home. 

In  selecting  the  10  sample  homes,  effort  was  made  to  specially 
indicate  those  available  among  the  middle  classes.  Several  city 
homes  of  wealth  and  culture  where  homeless  children  have  been 
welcomed  as  members  of  the  family  might  have  been  outlined. 
But  as  the  great  majority  must  ever  be  from  the  wage-earners 
and  farmers  the  10  above  noted  will  more  nearly  show  what  kinds 
of  homes  are  available. 

The  conclusions  derived  from  the  visitation  of  these  100 
family  homes,  added  to  the  testimony  of  officers  of  the  child-placing 
agencies,  may  be  summarized  as  follows: 

1.  There  are  in  California  plenty  of  family  homes  offered, 
or  obtainable  by  reasonable  effort,  to  provide  for  all  the  perma- 
nently homeless  children  in  the  state  who  are  reasonably  normal 
and  desirable. 

2.  While  parts  of  the  state  are  filling  in  with  new  settlers 
there  are  many  homes  available  in  the  towns  and  older  agricultural 
and  horticultural  districts;  and  even  the  newer  districts  already 
offer  a  fair  number  of  average  homes. 

3.  It  is  true  that  the  population  is  more  uncertain  and  change- 
able than  in  the  East,  but  it  is  becoming  more  stable  in  character 
and  location  every  year. 

4.  The  quality  of  family  homes  offered  and  now  being  used 
by  the  best  placement  agencies  nearly  equals  that  of  the  homes 
used  by  similar  agencies  in  the  East  and  in  the  Middle  West. 
If  we  take  into  consideration  the  lessened  necessity  for  costly 
buildings,  due  to  the  milder  climate,  the  physical  differences  are 
small.  But  in  mental  and  moral  influence  there  is  some  deficiency 
owing  to  lack  of  adequate  school  and  church  facilities  in  some 
localities.  In  many  of  the  older  communities  everything  is  equal 
to  similar  communities  in  the  East. 

5.  There  is  little,  if  any,  more  selfishness  and  effort  to  obtain 

190 


CALIFORNIA    FOSTER   HOMES 

the  services  of  children  at  small  cost  than  in  eastern  communities. 
People  who  would  do  such  things  are  to  be  found  everywhere. 
They  make  necessary  good  placement  agencies  with  expert  agents 
and  full  authority.  Such  agencies  will  carefully  investigate  every 
home  before  placement  is  made,  give  watchful  supervision  after 
placement,  and  promptly  remove  any  child  who  is  abused,  neg- 
lected, or  whose  service  is  exploited  for  the  foster  parents'  gain. 
With  such  methods  and  under  such  conditions  children  may  be 
placed  in  family  homes  as  safely  in  California  as  in  Iowa  or  lUinois. 

6.  Placement  of  dependent  children  in  family  homes  is  just  as 
practicable  in  California  as  east  of  the  Rocky  Mountains.  There 
will  probably  be  a  few  less  homes  available  in  proportion  to  popula- 
tion. The  wide  area  to  be  covered  will  somewhat  increase  the  cost 
of  the  work.  But  every  year  will  increase  the  number  of  stable, 
financially  competent,  and  suitably  located  people,  whose  char- 
acter and  standing  will  warrant  their  acceptance  as  foster  parents. 
Such  people  will  gladly  adopt  the  available  babies  and  small  chil- 
dren, and  in  a  laudable  spirit  receive  into  their  hom.es,  to  be  reared 
to  manhood  and  womanhood  as  members  of  their  families,  larger 
children  who  have  by  death  or  misfortune  been  rendered  homeless. 

7.  Placing-out  work  does  not  necessarily  antagonize  worthy 
institutions.  As  Dr.  Hart  has  declared  in  a  recent  book:  "The 
writer  does  not  share  the  views  of  those  who  believe  that  the 
institution  for  dependent  children  should  be  entirely  eliminated. 
He  believes  that  there  is  a  legitimate  field  for  a  certain  amount  of 
temporary  institutional  work  for  some  dependent  children."* 
Many  of  the  neglected,  misused,  and  destitute  children  of  the 
state  can  not  for  weeks  or  months  be  definitely  declared  homeless, 
or  their  relations  to  unworthy  parents  or  guardians  severed  by 
judicial  decree.  During  this  period  there  is  need  for  the  home  or 
orphanage  to  provide  a  man-made  substitute  for  the  family  home. 
But  when  the  case  is  settled  and  by  judicial  decree  or  otherwise  the 
child  is  found  to  be  permanently  dependent,  then  through  an 
approved  child-placing  agency  a  suitable  family  home  should  be 
selected  and  the  child  given  a  chance  to  grow  up  in  the  normal 
conditions  found  only  in  God's  institution  for  such  dependents — 
a  love-lighted  foster  home. 

*  Hart,  op.  cit.,  p.  69. 

191 


CHAPTER  XXI 
SOME  CAUSES  OF  DEPENDENCY 

THE  amount  of  child-dependency  in  California  is  very  large. 
It  has  been  repeatedly  estimated  as  exceeding  in  propor- 
tion to  population  that  of  any  other  state  in  the  Union, 
with  the  possible  exception  of  New  York.  Certainly  as  compared 
with  conditions  in  a  large  majority  of  the  states,  conditions  in 
regard  to  child  welfare  in  the  Golden  State  are  abnormal. 

According  to  the  United  States  Census  reports,  as  shown  in 
our  first  chapter,  on  December  31,  1910,  there  were  in  California 
institutions  for  dependent  children  236.4  for  each  100,000  of  the 
population.  New  York  was  then  and  probably  is  now  the  only 
state  with  an  equal  or  greater  proportion  of  institutionally  cared 
for  dependent  children.  Both  of  these  states  have  large  and 
numerous  orphanages,  so  the  statistics  are  a  fairly  accurate  indica- 
tion of  the  number  of  dependents.  But  the  figures  are  inadequate, 
as  they  show  no  dependent  children  cared  for  except  those  who  are 
inmates  of  institutions.  In  California  more  than  the  above  ratio 
of  dependents  are  now  receiving  institutional  aid,  and  fully  as 
many  receive  help  in  various  ways  outside  of  institutions. 

The  tabulations,  which  cover  a  number  of  institutions  not 
included  in  the  census  reports,  show  that  the  number  of  dependent 
children  now  in  private  child-caring  California  agencies  and 
institutions  averages  7,236.  it  is  probable  that  over  14,000 
different  children  are  in  care  every  year.  These  facts  make  the 
matter  definite  and  emphatic.  Such  numbers  under  institutional 
care  in  a  state  with  a  population  slightly  more  than  two  millions 
must  lead  to  special  inquiry.  Adding  the  number,  elsewhere 
estimated  at  5,766,  who  receive  aid  outside  the  institutions,  the 
situation  becomes  both  socially  and  economically  important. 

During  the  progress  of  this  survey  there  were  naturally 
brought  out  a  multitude  of  related  facts  and  conditions  bearing 

192 


SOME    CAUSES   OF   DEPENDENCY 

on  the  welfare  of  children  in  California.  From  these  a  few  of  the 
most  suggestive  may  be  outlined  with  advantage  to  all  concerned. 
I.  First  and  most  important  in  the  estimation  of  many 
social  workers,  of  all  causes  of  child-dependency  stands  intemper- 
ance. In  a  list  of  2,1 18  cases  in  the  San  Francisco  juvenile  court, 
complaints  for  which  were  made  under  10  heads,  drunkenness  leads 
with  554,  or  over  25  per  cent.  That  25  per  cent  should  be  thus 
plainly  labeled  in  a  city  where  there  are  over  2,000  saloons,  and 
more  than  that  number  of  places  where  liquors  can  be  freely 
bought  by  the  quart,  case,  or  gallon,  and  whose  liquor  bill  is  said 
to  be  the  largest  of  any  city  of  the  same  size  in  the  world,  is  not 
remarkable.  Other  sources  of  information  confirm  the  claim 
that  in  California  as  elsewhere  in  the  world  intemperance  is  in  all 
probability  the  leading  cause  of  child-dependency. 

2.  The  number  of  deserted  wives  and  husbands  and  of 
families  abandoned,  for  the  above  or  other  reasons,  is  astounding. 
Probably  could  this  cause  of  child-dependency  be  carefully  studied. 
East  and  West,  it  would  be  found  everywhere  the  greatest  immedi- 
ate cause  of  need  and  homelessness.  This  type  of  family  trouble 
seems  to  afflict  equally  native-born  Californians,  the  settlers  from 
eastern  states,  and  the  immigrant  nationalities.  It  would  seem 
that  family  ties  are  looser  here  than  elsewhere.  The  standard  of 
morality  in  many  localities  is  very  low.  Changes  of  marital  rela- 
tionship by  separation  and  divorce  are  common.  So  marked  is 
this  feature  of  California  life,  and  so  effective  is  it  in  adverse  in- 
fluence on  the  rising  generation,  that  it  is  said  by  the  officers  of  the 
Preston  School  of  Industry  with  special  reference  to  their  institu- 
tion: "The  reform  worker  hesitates  to  address  a  parent  by  the 
son's  name;  in  one  out  of  every  three  cases  it  is  a  different  one. 
There  are  boys  in  the  school  who  ingeniously  recount  a  multi- 
plicity of  parents,  past  and  present,  bewildering  to  the  mind  of 
one  who  retains  the  traditional  two  as  a  standard."*  The  same 
is  true  of  children  in  orphanages;  the  real  surname  is  often  difficult 
to  determine. 

3.  The  mild  climate  is  frequently  mentioned  among  the  spe- 
cial causes  of  child-dependency  in  California.     This  should  and 

*OIiver,  K.  E.:  The  Material  of  the  Problem.  Preston  School  Outlook, 
IX:  13  (June-July,  1910). 

•93 


CHILD   WELFARE   WORK   IN   CALIFORNIA 

does  make  it  easy  to  keep  a  family,  but  at  the  same  time  loosens  the 
tie  of  parental  responsibility  by  lessening  some  necessities.  AU- 
the-year  warmth  and  sunshine  encourage  mental  and  physical 
inertia,  especially  in  certain  races.  A  slack-minded  parent  sees 
that  no  great  immediate  suffering  is  likely  to  follow  neglect,  and 
yields  to  constitutional  weariness.  And  in  order  to  ease  the  bur- 
den gently  upon  the  lap  of  the  public,  one  parent,  or  perhaps  both 
in  collusion  for  the  purpose,  will  slip  quietly  away  without  leaving 
an  address.  Soon  the  child  or  brood  of  children  will  settle  com- 
fortably into  orphanage  life,  partly  at  the  expense  of  the  tax 
payer  and  partly  at  the  expense  of  the  generous  public.  Other 
phases  of  the  effects  of  climate  are  brought  out  by  Captain  Dodds 
in  a  later  chapter.* 

4.  Distressing  poverty  accompanied  by  disease  is  almost 
everywhere  associated  with  child-dependency.  It  is  true  in 
California,  where  extremes  of  both  wealth  and  poverty  abound. 
Some  poverty-stricken  people  are  imported,  and  some  who  are 
diseased  and  poor  come  from  other  states.  Part  of  these  people 
are  noted  definitely  in  other  paragraphs.  Another  part  may  be 
said  to  be  indigenous  to  the  state;  that  is,  their  poverty  and  dis- 
ease have  arisen  within  its  borders,  possibly  from  conditions 
peculiar  to  the  location.  The  poverty  may  be  the  cause  or  afford 
a  reason  for  the  disease,  or  the  disease  may  be  the  cause  of  the 
destitution.  A  fine  climate  may  reduce  to  the  minimum  those 
necessarily  in  poverty  or  afilicted  with  disease,  but  it  can  not 
render  people  immune  to  the  effects  of  alcohol.  Depression  and 
affliction  go  hand  in  hand  with  intemperance.  Death  and  child- 
dependency  follow  after. 

Speaking  of  the  causes  of  infant  mortality.  Dr.  Arthur 
Newsholme,  a  leading  English  authority,  says:  "Not  only  are 
poverty  and  a  high  death-rate  always  closely  related,  but  a  high 
death-rate  implies  also  a  high  rate  of  sickness,  and  of  inefficiency 
among  those  who  survive.  Poverty  of  parents  by  multifarious 
means  implies  excessive  sickness  and  mortality  among  them  and 
their  children.  Alcoholism  is  an  important  cause;  it  may  also 
be  an  associated  phenomenon,  or  a  result  of  poverty."  f     Extreme 

*  See  p.  205. 

t  Local  Government  Board.  Report,  1909-10,  p.  xxviii.  London,  Darling 
and  Son,  1910. 

194 


SOME   CAUSES   OF    DEPENDENCY 

poverty  not  only  will  produce  sickness  and  death  among  both 
children  and  adults,  but  must  as  inevitably  lead  to  much  child- 
dependency.  California  has  as  little  extreme  poverty  as  any  state, 
but  has  its  full  share  of  those  who  are  within  the  three  interlocking 
segments  of  the  circle  of  despair. 

5.  Modified  hoboism,  or  Bohemianism,  that  is,  a  desire  for 
frequent  change  of  location  and  occupation,  is  another  cause  of 
dependency.  California  affords  special  opportunities  for  such 
diversity.  Hundreds  of  children  are  now  in  institutions  re- 
ceiving state  aid  and  partially  supported  by  charitable  dona- 
tions, whose  parents  are  physically  competent  to  provide  a  good 
support  but  who  prefer  to  throw  the  burden  on  others  in  order  to 
freely  seek  personal  pleasure,  travel  from  place  to  place,  and  work 
or  not  as  they  choose,  unhampered  by  their  children. 

6.  The  importation  of  foreign  laborers  for  various  lines  of 
construction  work  is  a  prime  cause  of  dependency  both  among 
adults  and  children.  Many  such  laborers,  employed  on  railroads, 
in  irrigation  ditches,  and  in  the  mining  and  lumber  camps,  have 
large  families.  They  receive  low  wages,  live  in  the  coarsest  and 
most  primitive  style,  and  are  exposed  often  to  great  danger  of 
injury  or  death;  and  when  crippled  or  killed  leave  their  families 
no  resource  but  to  be  cared  for  by  charitable  agencies.  Many  such 
families,  when  the  original  contract  or  job  is  completed,  gravitate 
toward  San  Francisco  or  Los  Angeles,  and  add  to  the  "slum" 
elements  of  those  cities,  living  often  in  a  state  of  poverty  beyond 
expression.  Even  in  a  m.ild  climate  a  dollar  and  a  half  a  day  for 
three  or  four  days  a  week  is  inadequate  support  at  best  for  families 
of  from  four  to  ten  persons.  And  if  the  wage-earner  is  sick  or 
dies,  the  orphanage  is  the  only  hope  of  the  distressed  family. 

7.  Bad  housing  conditions  for  the  poorer  classes,  especially 
in  Los  Angeles  and  San  Francisco,  breed  disease  and  lead  to  the 
dependency  of  many  children.  Even  in  a  mild  climate  people 
can  not  live  in  multitudes  on  a  small  area  and  violate  sanitary  con- 
ditions without  paying  the  penalty.  In  spite  of  splendid  work 
done  by  the  Los  Angeles  housing  commission  and  by  equivalent 
organizations  in  San  Francisco,  there  are  localities  that  are  death 
traps  to  a  swarming  population.  Personal  visits  to  the  "Cholo 
Courts,"  the  "  Dry  Goods  Box  Villages,"  and  various  tenements, 

195 


CHILD   WELFARE    WORK    IN    CALIFORNIA 

were  enough  to  make  the  investigator  heartsick  and  long  for 
the  power  to  transform  shacks  and  hovels  into  decent  homes. 

8.  Notwithstanding  the  lower  moral  tone  and  looser  ideas 
on  marital  matters  which  seem  to  prevail  in  most  of  the  Coast 
region,  the  observations  made  led  to  the  conclusion  that  there  is 
very  little  more  illegitimacy  in  California  than  in  some  other 
parts  of  the  country,  it  has  been  suggested  that  one  principal 
reason  for  this  is  the  excessive  use  of  preventive  means,  on  account 
of  which  only  a  very  small  portion  of  undesired  pregnancies  reach 
maturity.  However,  here  as  everywhere,  the  actual  number  of 
illegitimates  is  very  large.  One  children's  home  at  Sacramento 
had  in  its  care  during  191 1  at  least  114  of  these  poor  "waifs  of 
humanity."  A  San  Francisco  agency  reports  nearly  as  many. 
A  child-placing  agency  at  Los  Angeles  had  a  like  number  in  care 
within  twelve  months.  And  of  course  some  unmarried  mothers 
cared  for  their  own  babies,  and  many  minor  organizations  aided 
in  the  disposition  of  others  by  adoption  or  otherwise. 

9.  Tuberculosis  plays  a  special  part  as  a  cause  of  dependency 
in  this  state,  although  but  little  originates  within  its  borders. 
California  is  the  promised  land  of  the  consumptive.  Thousands 
go  there  from  the  eastern  states  hoping,  with  the  optimism  peculiar 
to  the  disease,  for  relief  or  cure  in  the  mild  climate  of  the  Golden 
State.  They  take  their  families  with  them  and  form  no  small 
part  of  the  tide  of  emigration  toward  the  Coast.  Some  are  cured 
and  some  relieved  for  a  time  only  to  succumb  later.  And  the 
families  are  left  to  swell  the  multitude  of  children  in  the  institu- 
tions. 

It  should  be  noted  that  many  of  these  tubercular  immigrants 
are  poor,  having  probably  used  up  most  of  their  financial  resources 
at  their  previous  location.  Then  conditions  at  the  new  abode  are 
not  all  favorable.  They  are  among  strangers,  in  a  new  environ- 
ment, unused  to  the  ways  of  their  new  associates,  and  looked  upon 
by  neighbors  with  something  of  fear,  at  least  with  reference  to 
close  contact.  From  their  malady  they  are  unable  to  do  any  but 
light  work,  which  is  difficult  to  obtain,  and  poorly  paid  when  found. 
Under  these  conditions,  in  spite  of  a  favorable  climate,  the  poor 
invalid  soon  succumbs  to  worry,  insufficient  food,  poor  accom- 
modations, and  the  accelerated  progress  of  his  disease.     When  he 

196 


SOME    CAUSES   OF   DEPENDENCY 

is  gone,  a  family  of  children  is  left  to  populate  the  orphanage  or 
children's  home. 

This  is  no  fancy  picture,  but  an  outline  of  sad  facts  repeated 
in  hundreds  of  instances.  As  a  supplement  to  it  take  this  occur- 
rence. At  one  orphanage  a  matron  with  great  earnestness  said: 
"Is  there  no  possible  way  to  provide  for  tubercular  children  and 
those  just  taken  from  tubercular  parents,  except  right  among  other 
children,  as  at  this  institution?"  She  then  pointed  out  a  family  of 
five  children,  and  continued:  "The  parents  of  these  children  died 
within  a  few  weeks  of  each  other  of  consumption.  There  seemed 
to  be  no  near  relatives,  so  they  were  sent  here.  Two  of  them  are 
anemic  and  have  a  suspicious  cough.  The  larger  girl  has  en- 
larged neck  glands.  Yet  we  have  to  put  them  right  into  the  gen- 
eral dormitories  and  let  them  mingle  freely  at  all  times  with  the 
other  children.  And  these  are  not  the  only  ones  we  have  who 
need  segregation,  or  at  least  special  care  and  treatment."  What 
was  seen  and  heard  at  this  orphanage  was  repeated  in  substance 
in  others.  It  must  be  concluded  that  California  greatly  needs 
a  sanitarium  for  the  free  care  and  treatment  of  dependent  children 
afflicted  or  threatened  with  the  great  white  plague. 

These  nine  causes  of  dependency,  most  of  which  have  special 
bearing  in  California  above  what  they  have  in  most  parts  of  the 
country,  help  to  explain  the  abnormal  number  of  children  in 
institutional  care  in  this  great  state.  Others  might  be  outlined, 
but  these  are  sufficient  to  stimulate  thought  and  action  along 
several  important  lines. 


197 


CHAPTER  XXII 
A  SYMPOSIUM  OF  EXECUTIVE  OPINION 

IT  is  well  to  look  at  a  picture  from  several  different  viewpoints 
if  one  would  be  sure  of  correct  perspective  and  interpretation. 
This  is  the  more  necessary  when  the  theme  is  complicated, 
the  shadows  deep,  and  the  outlines  indistinct.  The  child  welfare 
problem  is  such  a  picture.  The  social  worker  or  philanthropist 
must  first  endeavor  to  see  what  really  exists  before  trying  to 
radically  improve  conditions. 

To  obtain  an  adequate  conception  of  the  child  welfare 
situation  in  California,  and  to  forecast  desirable  future  action,  a 
number  of  leading  executive  officers  of  institutions  and  organiza- 
tions were  invited  to  discuss  these  matters  as  seen  from  an  official 
viewpoint.  These  representatives  were  carefully  selected,  first 
for  their  personal  prominence  and  high  character,  second  as  repre- 
senting varied  and  important  lines  of  child  welfare  work.  Their 
illuminating  statements  may  be  considered  a  fair  picture  of  present 
conditions,  with  valuable  suggestions  as  to  what  is  best  for  the 
future. 

While  no  restrictions  were  placed  upon  these  writers,  the 
following  five  questions  were  asked  to  suggest  a  somewhat  uniform 
line  of  thought  in  the  articles  they  prepared: 

1.  What  are  some  of  the  chief  causes  of  child-dependency 
in  California? 

2.  How  can  child-dependency,  in  proportion  to  population, 
be  decreased  in  this  state? 

3.  How  can  those  really  dependent  best  be  provided  for? 

4.  How  can  the  expense  of  caring  for  dependent  children  in 
California  be  reduced? 

5.  Will  a  more  general  effort  to  place  dependents  in  family 
homes  materially  aid  in  solving  these  problems? 

Space  will  not  permit  full  reproduction  of  these  letters  and 
articles.    Their   most   salient   points   and   suggestions   are   here 

198 


Main  Building  with  Bishop  Annex 


Working  Boys  of  the  Bishop  Annex 


Busy  Workers  in  the  Sloyd  Shop 
Boys'  and  Girls'  Aid  Society,  San  Francisco.     (See  p.  84) 


^^*5t' 


Berry  Picking  at  Sebastopol 


Dining  Tent  at  tiie  Summer  Camp 


Sunday  Service  at  the  Summer  Camp 
Boys'  and  Girls'  Aid  Society,  San  Francisco.     (See  p.  84) 


A    SYMPOSIUM    OF    EXECUTIVE    OPINION 

presented  somewhat  condensed,  yet  giving,  it  is  believed,  a  dear 
statement  of  the  Cahfornia  situation  as  it  appears  to  the  various 
writers.  The  fact  that  these  articles  were  written  sometime  ago, 
will  only  slightly  if  at  all  lessen  their  value  for  present  study. 

George  C.  Turner,  superintendent  of  the  Boys'  and  Girls' 
Aid  Society  of  San  Francisco,  says: 

The  very  great  cause  of  child-dependency  is  intemperance,  which 
is  directly  responsible  for  seventy-five  per  cent  of  all  the  cases  in  the 
Juvenile  Court  of  San  Francisco.  Close  the  saloon  and  the  number  of 
dependent  children  will  be  lessened  by  more  than  one-half. 

The  decadence  of  the  home  is  a  second  cause  of  dependency  and 
delinquency.  The  apartment,  the  flat,  and  the  tenement  are  all  enemies 
of  childhood.  The  passing  of  the  home  and  the  coming  of  the  cafe, 
with  the  ubiquitous  saloon,  are  the  curse  of  San  Francisco  today. 

One  way  to  lessen  the  existing  number  now  in  institutions  is  in  the 
effort  to  make  growing  boys  and  girls  realize  the  need  of  independence. 
Give  them  an  opportunity  to  work,  and  then  make  it  possible  for  them  to 
live  on  their  earnings.  Boarding  homes  for  working  boys  and  gids  will 
preserve  their  self-respect,  and  yet  make  it  possible  for  them  to  earn  their 
own  way.  Make  the  charges  so  reasonable  that  the  boy  or  girl  can  keep 
properly  clothed,  and  have  a  little  for  pleasure,  and  you  have  trans- 
formed a  dependent  into  a  self-sustaining  member  of  the  community. 
One  great  evil  of  institutionalism  is  the  lack  of  appreciation  of  the  value 
of  money,  and  I  know  of  only  one  way  to  inculcate  it,  namely,  by  expe- 
rience. 

I  believe  in  the  free  family  home  for  small  children,  and  in  adoption 
wherever  possible.  But  for  the  large  number  who  are  beyond  the  age 
for  adoption  and  reception  as  members  of  the  family,  industrial  and  eco- 
nomic training  is  the  need;  and  that  in  my  judgment  can  best  be  obtained 
in  the  factory,  the  store,  and  the  shop,  and  under  conditions  of  restraint 
and  discipline  approaching  as  nearly  as  possible  those  of  normal  home  life. 

While  the  more  general  effort  to  place  dependent  children  in  family 
homes  instead  of  institutions  will  partially  solve  the  problem,  the  great 
thing  is  to  diminish  the  supply.  Let  us  go  at  the  causes  of  child-depend- 
ency, and  remove  them.  When  public  opinion  grapples  with  the  two 
fundamental  causes  I  have  mentioned,  both  of  which  can  be  largely 
eliminated,  then  the  supply  of  dependents  will  be  cut  in  two. 

I  am  optimistic  for  the  future.  Recent  legislation  has  been  good. 
We  are  now  to  have  wise  supervision  of  existing  institutions  by  our  State 
Board  of  Charities  and  Corrections.     We  expect  the  creation  in  future 

199 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

of  the  type  of  homes  for  children  needed  to  develop  independence.  We 
hope  for  the  development  of  the  juvenile  court  along  right  lines.  And 
with  all  these  1  believe  we  shall  do  much  to  relieve  the  existing  situation. 
I  wish  to  add  a  word  of  appreciation  of  your  thoughtful  and  sym- 
pathetic study  of  our  local  situation.  I  am  sure  it  will  throw  much  light 
on  the  subject,  and  help  us  to  a  solution  of  our  problem, 
San  Francisco,  November,  191 1. 

The  Children's  Home  Society  of  California,  with  head- 
quarters at  Los  Angeles,  is  one  of  the  most  important  child-helping 
agencies  of  the  state.  For  several  years  Herbert  W.  Lewis  was 
its  superintendent,  after  long  experience  in  child  welfare  work 
in  Minnesota,  Washington,  D.  C,  New  York,  and  California. 
His  article  follows: 

The  facts  ascertained  by  your  study  serve  to  emphasize  anew  the 
necessity  for  wider  dissemination  of  full  information  on  this  subject  in 
California.  While  we  have  known  that  conditions  here  were  not  as  they 
should  be,  the  vast  size  and  difficult  nature  of  our  problems  are  revealed 
now  for  the  first  time  by  the  figures  you  are  about  to  publish. 

I  am  glad  to  respond  to  your  questions  for  several  reasons,  but 
largely  because  things  are  not  in  all  respects  as  bad  as  they  appear,  and 
because  there  are  some  explanations  of  the  situation  which  one  would 
recognize  only  after  long  acquaintance  with  and  actual  study  of  the  sub- 
ject. 

In  response  to  your  query  as  to  the  chief  causes  of  child-dependency 
in  this  state,  I  shall  not  attempt  to  discuss  the  social  and  economic  diffi- 
culties which  usually  contribute  to  it.  Human  nature  is  everywhere 
pretty  much  the  same,  and  adverse  sociological  forces  operate  with  prac- 
tical uniformity  throughout  the  nation. 

There  is  no  such  mass  of  actual  child-dependency  as  appears  from 
the  statistics  compiled.  Very  much  of  it  is  purely  artificial,  and  is  due  to 
the  mistaken  policy  of  the  state  toward  this  subject. 

The  larger  part  of  child  dependents  included  in  the  figures  are 
residents  of  the  orphan  asylums  where  the  state  or  the  county  contribute 
to  their  maintenance.  They  are  admitted  by  the  officers  of  the  insti- 
tutions in  response  to  appeals  made  to  them  on  behalf  of  the  children. 
But  there  is  no  adequate  test  of  the  need  of  the  charity  solicited.  Insti- 
tution managers  wish  to  demonstrate  the  usefulness  of  their  institutions, 
and  this  is  best  done  by  a  record  of  large  numbers  received  and  cared  for. 
Thousands  of  weak  and  unworthy  parents  seek  to  place  their  children 
in  the  state-aided  asylums  when  with  proper  self-sacrifice  and  industry 

200 


A    SYMPOSIUM    OF    EXECUTIVE    OPINION 

they  could  perform  their  own  parental  duties.  The  falsehood  and  sub- 
terfuge used  to  get  children  admitted  to  institutions  are  almost  beyond 
belief.  They  are  only  fully  known  by  those  who  have  honestly  endeav- 
ored to  admit  those  in  real  need  and  reject  those  whose  parents  could  and 
should  support  them. 

Then  there  is  no  co-operation  among  the  institutions.  A  child 
rejected  in  one  may  be  received  at  the  next.  There  is  no  interchange  of 
information  whereby  one  institution  might  be  made  aware  of  facts  learned 
by  another  touching  the  propriety  of  the  reception  of  a  given  child  or 
family.  In  many  instances  there  is  no  eflFort  made  to  learn  the  reliability 
of  statements  as  to  the  death  or  disability  of  an  absent  parent.  There  is 
no  system  through  which  deserting  parents  may  be  sought  and  compelled 
to  support  their  children.  Some  officers  of  Juvenile  Courts  have  made 
commendable  efforts  in  this  direction,  but  a  great  majority  of  the  applica- 
tions for  admission  of  children  to  asylums  are  never  heard  of  in  the  Juve- 
nile Courts. 

The  return  or  claim  filed  with  the  State  Board  by  the  managers 
of  an  institution  merely  sets  forth  the  fact  that  certain  children  have  been 
received  and  maintained  for  a  stated  length  of  time  as  orphans,  half- 
orphans,  or  abandoned  children;  and  the  state  thereupon  pays  the  insti- 
tution the  amount  due,  according  to  law.  Under  such  circumstances 
the  abuse  rate  must  be  enormous. 

There  are  no  social,  economic,  climatic  or  racial  conditions  in  Cali- 
fornia to  account  for  the  disproportion  of  children  apparently  dependent 
in  this  state. 

Decrease  in  child-dependency  here  can  be  accomplished  first  by 
the  elimination  of  the  abuses  mentioned  above,  second  by  the  submission 
of  all  actual  dependents  to  careful  investigation  under  the  provisions 
of  the  Juvenile  Court  Law.  Children  found  permanently  dependent 
by  the  courts,  could  and  should  be  committed  to  the  care  of  some  insti- 
tution or  society  which  has  an  approved  home-finding  or  placing-out 
system.  They  would  thereupon  become  subject  to  adoption  without 
consent  of  their  parents;  would  be  placed  in  the  homes  of  persons  suitable 
and  willing  to  receive  them,  and  would  cease  to  be  dependents. 

In  my  judgment  there  can  no  longer  be  any  legitimate  controversy 
as  to  the  best  method  of  providing  for  children  permanently  dependent. 
For  the  normal  dependent  child  the  family  home  is  the  most  natural, 
most  comfortable,  most  happy,  and  most  advantageous  situation.  Of 
course  these  homes  must  be  carefully  selected,  then  properly  supervised 
after  the  children  are  placed. 

However,  there  will  always  be  left  on  hand  a  certain  proportion  of 

201 


CHILD   WELFARE    WORK    IN    CALIFORNIA 

children  who,  because  of  mental  or  physical  deficiencies,  should  never 
be  placed  in  family  homes. 

The  great  expense  to  the  state  and  the  people  of  California  for  the 
support  of  dependent  children  can  be  reduced  by  first  requiring  that  none 
shall  be  eligible  to  receive  state  aid  unless  first  declared  dependent  by  the 
process  provided  in  the  Juvenile  Court  Law.  Second,  by  enforcement 
of  the  principle  that  continued  wilful  neglect  of  parental  duties  is  suffi- 
cient reason  for  the  extinction  of  parental  rights.  Third,  by  closing  up 
small  and  unnecessary  institutions.  Fourth,  by  careful  examination 
and  rigid  supervision  of  families  of  children  receiving  aid  in  their  own  or 
other  private  homes. 

A  more  general  effort  to  place  dependent  children  in  family  homes, 
rather  than  in  institutions,  will  materially  aid  in  solving  all  these  prob- 
lems. For  every  normal,  healthy  dependent  child  under  five  years  old 
there  are  a  dozen  homes  waiting;  and  for  those  older  homes  can  be  found 
as  soon  as  assurance  can  be  given  that  there  will  be  no  interference  from 
parents  or  unworthy  relatives. 
Los  Angeles,  December,  191 1, 

The  chief  probation  officers  of  populous  counties  are  very 
favorably  situated  to  both  learn  the  facts  concerning  and  suggest 
the  remedies  for  social  ills  and  evils.  Alameda  County,  California, 
has  a  population  exceeding  a  quarter  of  a  million.  Christopher 
Ruess  has  been  for  some  years  its  probation  officer.  The  follow- 
ing is  his  contribution: 

Speaking  from  an  experience  of  four  years  as  a  Probation  Officer, 
I  would  say  that  the  main  causes  of  child-dependency  here  appear  to  be, 
I  St,  the  broken  home;  2nd,  the  school  that  fails  to  train  for  life;  and 
3rd,  the  community  which  still  provides  little  opening  for  skilled  work 
for  the  boy  out  of  school. 

These,  however,  are  only  superficial  causes.  It  is  a  waste  of  breath 
to  rant  about  them  as  many  do.  There  are  deeper  causes.  Why  is  the 
home  broken,  and  the  community  too  poor  to  provide  what  we  know 
is  best?  Because  of  the  drink  evil,  the  double  standard  of  morals  and  the 
accepted  social  evils,  and  the  intermittent  and  seasonal  employment,  or 
utter  unemployment — these,  chiefly,  make  the  broken  home,  and  cause 
child-dependency.     Destroy  the  cause,  the  effect  will  cease. 

Perhaps  through  a  partial  application  of  the  single  tax,  and  through 
city  ownership  of  public  utilities,  the  income  for  the  larger  community 
life  is  coming,  with  its  continuation  schools,  and  other  helps  and  safe- 
guards.    But  these  have  not  yet  arrived,  and  the  children  suffer. 

202 


A    SYMPOSIUM    OF    EXECUTIVE    OPINION 

Between  the  dependent  and  the  delinquent  child  the  line  is  narrow 
and  shadowy.     Misfortune  prepares  the  way  for  delinquency. 

Perhaps  the  deepest  problem  of  all  is  unemployment  and  its  resultant 
misery.  The  crowded  neighborhood,  the  three  rooms  for  a  family  of 
nine,  little  or  no  yard, — this  is  part  of  our  present  industrial  system.  As 
society  gets  more  fraternal,  some  would  call  it  more  paternal,  we  shall 
eradicate  this  cause. 

Not  waiting  for  the  eradication  of  present  causes  of  child-depend- 
ency, we  can  reduce  the  number  of  dependents  by  simply  changing  the 
mechanics  of  the  system.  How?  i.  By  a  better  sifting  of  applicants 
for  state  aid  in  orphanages,  and  of  applicants  for  private  aid,  too,  for 
that  is  just  as  much  a  tax  on  the  ultimate  tax-payer  and  philanthropist. 
2.  By  a  better  after-care.  The  institutions  are  not  now  to  be  blamed. 
They  have  not  the  money  to  hire  investigators  to  do  preliminary  sifting, 
or  to  give  after-supervision.  And  such  sifting  and  after-care  is  too  large 
a  problem  for  the  single  institution  to  attack. 

This  work  of  sifting  and  supervision  should  be  done  by  the  probation 
officers  throughout  the  state.  But  until  we  have  a  State  Probation 
Commission,  with  uniform  standards  and  methods,  I  doubt  if  the  insti- 
tutions would  be  justified  in  turning  over  such  delicate  and  serious  work 
to  the  probation  officers. 

Many  a  child  is  now  in  an  institution  whom  a  good  social  worker 
would  have  kept  with  one  parent,  or  relatives,  in  a  normal  home.  Many 
a  child  from  an  orphanage  ends  in  the  penitentiary,  not  because  the  orphan- 
age failed  but  because  there  was  little  or  no  after-care,  and  the  good  work 
of  the  orphanage  went  for  naught.  Dependent  children  till  of  full  age 
should  be  under  the  care  of  the  state.  Nothing  else  will  protect  the  child 
or  the  state  in  the  absence  of  natural  or  true  foster  parents. 

No  state  aid  should  be  given  except  for  children  found  dependent 
and  committed  by  the  Juvenile  Courts. 

Each  child  is  born  with  the  right  to  a  home,  which  is  paramount  to 
the  parents'  right  to  the  child,  when  they  do  not  provide  a  fit  home. 
The  state  which  denies  the  child  its  birthright  of  a  home,  with  due  physical, 
mental  and  moral  care,  must  pay  with  compound  interest,  as  in  California, 
for  its  sins  of  omission  against  the  child.  Nothing  that  a  child  receives 
can  justly  be  termed  a  charity;  the  world  owes  the  child  a  chance. 

The  same  money  now  spent  in  too  many  institutions,  were  it  invested 
in  child-placing,  and  in  sifting,  thorough  investigation,  and  in  after-care, 
would  bring  to  the  kind-hearted  and  generous  ten  times  as  much  real 
satisfaction,  and  to  the  children  and  the  state  ten-fold  as  much  good. 
Oakland,  December,  19 ii. 

203 


CHILD   WELFARE   WORK    IN    CALIFORNIA 

Captain  A.  C.  Dodds  was  for  over  eight  years  the  chief 
probation  officer  of  Los  Angeles  County,  now  the  most  populous 
county  in  the  state.  He  was  for  five  years  before  this  in  the  same 
position  in  Cook  County,  Illinois,  where  the  immense  juvenile 
court  work  of  Chicago  gave  him  a  rich  fund  of  experience.  He 
was  therefore  connected  with  the  juvenile  court  almost  from  its 
very  inception,  and  in  years  of  actual  service  at  the  time  of  writ- 
ing this  article  was  perhaps  the  oldest  probation  officer  in  the 
United  States.  His  contribution  dwells  mainly  on  the  causes  of 
dependency  and  delinquency: 

Whether  in  the  mild  climate  of  southern  California  or  in  the  more 
austere  climate  of  Chicago,  where  I  served  during  the  first  five  years  of 
the  Juvenile  Court  in  that  city,  I  have  found  the  same  causes  evident  in 
the  cases  where  it  has  been  necessary  to  apply  the  Juvenile  Court  system 
to  wayward  children. 

Classifying  them,  I  find  they  can  all  be  placed  under  four  distinct 
heads,  namely:  death,  divorce,  drunkenness,  and  desertion.  I  am  not 
so  well  informed  generally  as  to  facts  in  regard  to  these  things  as  in  former 
years  in  Chicago,  but  in  more  than  eight  years  of  work  here  in  Southern 
California  these  conditions  have  been  accentuated  to  such  an  extent  that 
they  are  now  the  leading  factors  in  the  production  of  a  class  of  children 
who  finally  find  their  way  before  the  Juvenile  Court. 

In  the  homes  where  death  has  entered  and  the  breadwinner  has 
been  taken,  the  mother  is  left  to  struggle  along  with  her  group  of  little 
children.  She  has  now  to  become  the  bread-winner,  and  the  children 
are  left  to  their  own  devices  a  great  part  of  the  day.  The  eldest  one, 
especially  if  a  girl,  is  required  to  become  a  little  mother  to  the  rest.  All, 
outside  of  school  hours,  drift  into  the  street,  mingle  with  other  neglected 
children,  and  thus  become  members  of  a  "gang,"  with  home  life  often  a 
minus  quantity,  and  if  any  exists  of  a  deplorable  quality. 

On  the  other  hand,  if  the  mother  is  taken  and  the  father  left,  the 
same  conditions  exist  in  even  a  more  aggravating  form.  Of  all  the  help- 
less creatures  in  dealing  with  household  economics  and  handling  little 
children  first  and  worst  is  the  average  man.  No  wonder,  if  the  mother 
is  lost,  the  home  is  ruined  and  the  children  become  street  Arabs. 

What  is  true  of  the  home  broken  by  death  is  likewise  true  under  the 
other  conditions  indicated  by  the  words  divorce,  desertion,  and  drunken- 
ness. I  need  not  describe  the  effects  of  a  drunken  husband  on  the  home 
life  of  a  family.     And,  while  it  is  much  more  rare  that  the  mother  indulges 

204 


A    SYMPOSIUM    OF    EXECUTIVE    OPINION 

in  intoxicants,  yet  when  it  happens  the  result  is  even  more  disastrous 
to  the  children  in  the  home. 

There  is  another  factor  which  has  shown  itself  somewhat  prominently 
in  our  experience  in  Southern  California — a  good  many  of  the  parents 
with  whom  we  have  to  deal  are  ignorant,  incompetent  and  indifferent. 
These  are  mainly  low  class  laborers,  generally  of  foreign  birth  or  descent, 
but  some  are  of  American  strains.  Their  children  are  entirely  ignorant 
of  the  most  rudimentary  principles  of  life,  and  grow  up  rude,  coarse,  and 
ignorant.  But  for  the  saving  knowledge  implanted  by  the  public  school 
system,  this  condition  of  things  in  the  home  would  be  an  even  more  serious 
menace. 

The  indifference  of  parents  to  the  duty  of  training  and  caring  for 
their  children,  seems  more  pronounced  here  than  in  other  places  1  have 
known.  The  climate  is  such  that  it  is  no  particular  hardship  for  children 
to  stay  out  of  doors  for  a  succession  of  nights,  and  many  parents  seem 
almost  entirely  indifferent  as  to  the  welfare  and  whereabouts  of  their 
families.  They  do  not  take  it  seriously  when  children  are  not  at  home 
at  the  usual  bed  time.  Nor  do  they,  if  they  stay  out  all  night,  sleeping 
in  the  weeds  of  vacant  lots.  Such  parents  take  it  for  granted  that  no 
serious  harm  will  result,  and  do  not  go  to  the  trouble  to  search  for  the 
children. 

Another  phase  of  indifference  is  that  in  these  homes,  or  in  most  of 
them,  the  children  receive  no  religious  instruction  of  any  kind.  They 
do  not  go  to  Sunday  School.  They  are  never  seen  at  church.  They  have 
no  conception  of  religious  principles,  the  necessary  foundation  of  all  high 
class  character.  They  attend  almost  universally  the  cheap  vaudeville 
theaters,  penny  arcades,  moving  picture  shows,  and  other  places  of  cheap 
and  dangerous  amusement. 

By  reason  of  climatic  conditions,  the  Sabbath  day  is  spent  by  great 
hosts  of  people  in  this  sunny  Southland,  in  taking  their  entire  families 
to  the  beaches,  or  the  mountains,  or  other  pleasure  resorts.  From  a 
hygiene  standpoint  relaxation  and  recreation  are  both  necessary  and 
desirable,  yet  the  absence  of  all  religious  training  at  home  and  this  pleasure 
seeking  that  prevents  church  attendance  and  turns  the  Sabbath  into  a 
day  for  exhilarating  amusements,  will  account  for  the  waywardness  of 
many  children.  Such  conduct  also  opens  the  way  for  the  breaking  up  of 
many  a  home. 

Los  Angeles,  January,  19 12. 

San   Francisco  city  and   county  are   coterminous,  and  had  a 
population  in  1910  of  416,912.     The  people  are  extremely  varied 

205 


CHILD   WELFARE    WORK    IN    CALIFORNIA 


in  character,  financial  means,  and  nationality.  The  duties  of  the 
probation  officer  are  heavy  and  exacting,  but  give  exceptional 
opportunity  for  the  study  of  child-dependency  and  related  matters. 
J.  C.  Astredo,  who  fills  this  position,  presents  the  following: 

In  response  to  your  request  for  my  views  on  several  matters  relating 
to  child-welfare  in  California,  1  take  pleasure  in  presenting  a  few  facts 
and  suggestions.  My  present  viewpoint  is  that  of  a  court  official,  but 
previous  to  my  appointment  as  Chief  Probation  Officer  of  San  Francisco 
I  was  for  a  long  time  engaged  here  in  special  preventive  and  reformatory 
work. 

As  to  the  main  cause  of  child-dependency,  1  know  of  nothing  more 
suggestive  than  the  official  record  of  2,218  cases  handled  in  the  Juvenile 
Court  of  this  county  from  May  i,  1906  to  July  i,  1910.  These  involve 
both  dependency  and  delinquency,  but  the  ultimate  causes  are  about  the 
same  for  both.  The  proportions  would  not  be  materially  changed  if 
the  classes  could  be  separated.  However,  separation  is  almost  impossible. 
Many  are  dependents  as  regards  support,  and  at  the  same  time  delinquent 
in  conduct,  and  many  dependents  because  of  evil  environment  rapidly 
pass  into  delinquency. 

In  the  period  above  noted,  the  cases  considered  in  the  Juvenile 
Court  were  in  response  to  complaints  under  ten  heads  as  follows: — 

Illegitimacy  ....  64 
Penal  conviction  of  rel- 
atives    41 

Brutality       ....  26 


Drunkenness 

•      •     554 

Desertion 

.      .     426 

Immorality    . 

•     •     377 

Illness 

322 

Poverty    . 

.      .     211 

Neglect     . 

.      .     178 

Laziness 19 


Total 


2,218 


The  main  causes  of  child-dependency,  as  also  their  relative  impor- 
tance, are  perhaps  sufficiently  illustrated  by  this  record,  I  will  therefore 
leave  the  matter  without  further  comment. 

You  ask  what  can  be  done  to  diminish  the  amount  of  child  depend- 
ency in  California,  which  statistics  show  to  be  exceedingly  large  in  pro- 
portion to  population.  Various  matters  must  be  taken  into  consideration. 
Speaking  from  the  standpoint  of  a  court  officer,  one  very  important 
way  to  reduce  dependency  is  by  making  the  parents  financially  responsible 
for  their  own  failures  and  neglect. 

Whenever  parents  are  able-bodied  and  can  work,  or  are  otherwise 
possessed  of  means  to  do  it,  they  should  be  made  to  pay  the  cost  of  caring 

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A    SYMPOSIUM    OF    EXECUTIVE    OPINION 

for  their  children,  if  such  are  forced  into  custody  of  the  Court,  or  thrown 
upon  the  care  of  outsiders  or  institutions.  In  the  last  six  months,  by  the 
special  effort  of  this  office,  the  amount  paid  by  such  financially  capable 
parents,  whose  children  are  under  the  supervision  of  this  Court,  has  risen 
from  a  little  over  $200  per  month  to  over  $700  per  month.  In  the  near 
future  ^1,000  per  month  will  be  collected  from  this  class.  However, 
we  believe  that  ultimately,  by  reason  of  this  very  pressure  to  put  the 
financial  responsibility  where  it  belongs  a  gradual  reduction  will  follow, 
both  in  amount  of  collections  and  in  number  of  children  under  the  care 
of  the  Court. 

I  am  heartily  in  favor  of  making  the  largest  possible  use  of  family 
homes  for  the  care  of  dependent  and  delinquent  children  whose  own 
homes  are  not  acceptable.  1  feel  that  there  will  always  be  a  large  number 
of  children  who  can  be  cared  for  in  proper  institutions  and  am  much 
encouraged  by  the  changes  in  institutional  management  during  recent 
years,  making  toward  specializing  in  behalf  of  subnormal  children. 

For  the  permanently  dependent  normal  child,  however,  I  believe 
a  carefully  selected  foster  home  is  advantageous.  We  are  working  with 
several  agencies  in  San  Francisco  for  both  temporary  and  permanent 
placement  work,  and  I  feel  that  it  will  be  to  the  advantage  of  a  large 
number  of  children  to  increase  the  number  of  foster  homes,  providing 
they  are  carefully  selected  and  adequately  supervised. 
San  Francisco,  December,  19 11. 

The  California  Society  for  the  Prevention  of  Cruelty  to 
Children  is  one  of  the  most  active  and  important  child  welfare 
organizations  on  the  Coast.  It  investigates  thousands  of  cases 
every  year,  keeping  a  detailed  and  systematic  record/^It  probably 
comes  in  closer  touch  with  the  inner  details  of  life  among  the 
poor — especially  in  San  Francisco — and  the  causes  of  dependency 
and  delinquency,  than  any  other  society.  This  protective  agency, 
in  carrying  out  the  purpose  indicated  by  its  title,  institutes  more 
suits  in  behalf  of  children  in  the  various  courts  than  all  other 
San  Francisco  societies  combined.  M.  J.  White  now  (191 5)  for 
over  fifteen  years  has  been  its  executive  officer.  His  statements 
and  suggestions  have  a  special  interest.  „^ 

The  study  of  the  Child-Helping  Institutions  of  California,  just  made 
by  the  Russell  Sage  Foundation,  is  certain  to  be  productive  of  beneficial 
results.  When  our  public  officials  and  charity  giving  humanitarians 
awaken  to  realization  that  public  and  private  funds  are  being  expended 

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CHILD   WELFARE    WORK    IN    CALIFORNIA 

for  cure  that  should  be  spent  for  prevention,  steps  will  be  taken  to  change 
the  system  now  in  operation. 

Our  present  system  may  be  likened  to  an  old-fashioned  Mexican 
ox  cart,  with  its  bulky  body  and  heavy,  slow-moving  solid  wooden  wheels. 
Such  a  vehicle  can  carry  a  load,  but  at  a  great  waste  of  time  and  large 
expenditure  of  physical  energy.  The  Mexican  ox  cart  may  be  picturesque, 
but  it  has  no  place  among  modern  vehicles  of  utility. 

It  is  so  with  our  present  methods  of  dealing  with  the  child-saving 
problem.  They  may  be  picturesque,  but  they  are  largely  out  of  date. 
Practice  has  lagged  far  behind  well-tested  theories.  Good  practical 
workers  have  evolved  better  plans  and  methods  for  carrying  the  juvenile 
problem  over  the  rough  highway  of  formative  years.  These  have  been 
tested  and  proven  efficient.  But  society  continues  to  bundle  the  juveniles 
into  the  old  judicial  ox  cart,  the  vehicle  goes  bumping  down  the  road, 
jolting  out  and  losing  many,  and  causing  inconvenience  to  all. 

To  my  mind  the  chief  cause  of  child-dependency  in  California  is 
the  drink  habit.  In  my  eighteen  years'  experience  as  a  newspaper  re- 
porter, and  twelve  years  as  secretary  of  this  society,  1  feel  justified  in 
saying  that  of  the  thousands  of  cases  of  child-dependency  that  have  come 
to  my  notice  fully  ninety-five  per  cent  were  traced  directly  or  indirectly 
to  the  liquor  evil.  Let  me  emphasize  here  that  this  declaration  does 
not  apply  to  that  class  of  dependents  who  have  become  a  burden  on  the 
public  because  of  the  normal  death,  sickness  or  misfortune  of  one  or  both 
parents. 

Another  cause  for  so  much  dependency  is  the  manner  in  which 
the  cases  of  unfortunate  children  are  handled  in  our  courts.  I  am  sorry 
to  say  that  too  often  children  taken  into  court  for  their  protection  are 
later  returned  there  as  delinquents.  It  happens  in  just  this  way.  When 
cases  are  brought  into  the  courts,  and  pleas  made  for  the  little  ones' 
welfare,  the  assertion  is  at  once  made  in  answer  that  homes  should  not 
be  destroyed  and  family  ties  broken.  It  is  claimed  that  parental  rights 
above  all  others  should  be  sacredly  observed.  The  consequence  too  often 
is  that  children  are  restored  to  the  same  awful  environment  from  which 
perhaps  48  hours  before  officers  have  taken  them.  Or  perhaps  they  are 
assigned  for  a  short  time  to  some  charitable  institution,  then  reclaimed 
by  the  absolutely  worthless  relatives,  with  the  consent  of  the  court,  and 
taken  back  to  the  old  ruinous  environment. 

Lest  we  be  misunderstood  let  me  say  it  is  the  earnest  endeavor  of 
all  our  humane  officers  to  strengthen  family  ties,  and  not  destroy  homes. 
The  children  who  are  called  before  our  courts  are  usually  there  because 
the  places  from  which  they  are  taken  are  not  homes,  and  there  are  no 

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A    SYMPOSIUM   OF    EXECUTIVE    OPINION 

family  ties  worthy  of  that  name.  Protection  of  the  children  is  asked 
because  of  drunkenness,  immorality,  degeneracy,  neglect,  and  cruelty. 
It  is  not  a  home  where  the  male  and  female  parents  meet,  fight,  drink, 
indulge  in  debauchery,  and  neglect  their  children.  Yet  in  hundreds  of 
cases,  drawn  from  such  conditions,  our  judiciary  guard  so  rigidly  the 
sacred  rights  of  parents  that  either  at  once,  or  after  a  short  stay  in  a  char- 
itable institution,  children  are  returned  to  the  alleged  home,  frequently 
returning  to  the  court  again  and  again  as  dependents,  or  when  a  little 
older  as  delinquents.  It  is  the  practice  of  over-weighing  the  alleged 
rights  of  parents  against  the  actual  needs  and  rights  of  the  children,  that 
we  emphatically  protest.  Absolute  severance  of  parental  rights  in  many 
cases  is  the  only  hope  of  the  unfortunate  children. 

In  practice,  when  the  parents  are  very  bad,  the  children  are  usually 
assigned  to  some  institution,  where  for  an  indefinite  time  they  are  sup- 
ported partly  by  the  state  and  partly  by  the  charitable  public. 

The  teachers  and  managers  of  the  institution  instruct  their  young 
charges  in  truth,  morality,  virtue,  and  cleanliness.  There  is  usually  a 
favorable  response  to  these  efforts.  But  the  courts  permit  frequent  visits 
of  parents  and  relatives.  The  influence  of  the  degenerate,  drunken,  or 
immoral  parent  is  always  evilly  exercised  upon  the  child.  Then  with 
few  exceptions,  sooner  or  later  these  children  are  restored  to  their  parents. 
In  many  cases  they  are  kept  at  the  institution  until  old  enough  to  be  of 
use  to  the  parents,  either  in  the  home  or  as  wage-earners.  And  practically 
all  the  work  and  money  expended  on  such  children  is  thrown  away,  for 
in  a  majority  of  cases  after  return  they  yield  to  the  influence  of  their 
family  environment  and  become  as  vile  as  their  relatives. 

If  our  judiciary  would  say  to  neglectful  and  undeserving  parents: 
''You  will  forever  lose  your  children  if  you  do  not  reform,  if  you  wilfully 
fail  to  provide  for  them,  or  abandon  them  in  institutions,"  and  keep  its 
judicial  word,  something  would  happen.  Those  parents  possessing 
something  of  manhood  and  womanhood  would  correct  their  habits,  and 
remove  the  condition  of  dependency  from  their  children.  Decent  people 
who  have  children  in  institutions  would  seek  to  reclaim  and  provide  a 
proper  home  for  them.  Many  of  those  still  left  in  institutions  could 
be  considered  abandoned  by  relatives,  and  placed  in  family  homes.  Thus 
simply  a  firm  judicial  stand  on  this  proper  basis  would  greatly  decrease 
the  number  of  dependents,  and  save  to  the  state  and  people  many  hundreds 
of  thousands  of  dollars  every  year. 

When  it  is  shown  that  parents  are  unworthy,  and  proved  beyond 
question  that  they  can  not  and  do  not  wish  to  reform,  the  duty  of  those 
who  have  the  fate  of  the  little  ones  in  their  hands,  is  to  sever   entirely 

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CHILD    WELFARE    WORK    IN    CALIFORNIA 

the  old  relations,  and  place  their  young  charges  in  permanent  homes 
in  private  families,  that  are  willing  and  glad  to  accept  just  such  children. 
In  the  broad  state  of  California  there  are  hundreds  of  good  families 
eager  to  take  unfortunate  children  into  their  home  circles.  The  books 
of  our  placing-out  agencies  show  multitudes  of  such  applications  which 
can  not  be  filled  because  the  courts  have  not  set  the  children  free  from 
unworthy  parents,  or  protected  as  they  should  worthy  foster  parents. 
The  time  has  come  to  abandon  the  old  ox  cart.  The  automobile  of  better 
methods  is  just  to  parents,  infinitely  better  for  the  children,  and  far 
more  economical  for  the  state. 

In  regard  to  family  homes  in  which  dependent  children  can  be 
placed,  some  for  full  adoption,  and  others  for  minority  guardianship, 
adequate  supervision  is  a  necessity.  They  should  all  through  the  minority 
years  of  the  child  or  children  be  under  the  surveillance  of  reputable  home- 
placing  societies,  probation  officers,  or  state  agents. 

Our  home-finding  societies  will,  when  the  public  is  awakened, 
become  the  greatest  institutions  of  our  child-helping  work.  They  are 
maintained  without  cost  to  the  state,  and  at  a  very  moderate  expense  to 
their  philanthropic  supporters. 

It  would  not  be  right  to  close  this  discussion  leaving  the  impression 
that  conditions  are  now  worse  than  in  the  past.  The  reverse  is  true. 
There  are  less  dependent  children  in  California  in  proportion  to  popula- 
tion than  years  ago.  There  is  less  cruelty,  less  vicious  neglect,  less  suffer- 
ing among  the  innocent  and  helpless  than  in  former  times.  Our  work 
and  that  of  other  agencies  has  had  large  results.  Our  courts,  although 
still  open  to  criticism,  are  slowly  coming  into  line  with  modern  ideas. 
The  forward  movement  of  humane  bodies  on  educational  and  legal  lines 
has  materially  decreased  evil  conditions,  and  opened  the  way  for  the  im- 
provement of  environment.  The  outlook  is  favorable  and  the  future  is 
bright. 

San  Francisco,  December,  191 1. 

Dr.  Dana  W.  Bartlett,  superintendent  of  the  Bethlehem 
Institutions  of  Los  Angeles,  has  given  a  brief  and  terse  but  valua- 
ble outline  of  opinion  on  these  child  welfare  matters. 

In  response  to  your  request  I  reply  as  follows: 

1.  My  impression  is  that  the  chief  causes  of  child-dependency  in 
California  are  Desertion,  Intemperance,  Divorce,  and  Industrial  Acci- 
dents.    The  ultimate  major  cause  of  dependency  is  economic. 

2.  Child-dependency  can  be  materially  decreased  by  (i)  Better 
home  life;  (2)  Better  physical  environment;  (3)  Elimination  of  the  saloon; 

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A    SYMPOSIUM    OF    EXECUTIVE   OPINION 

(4)  Building  of  Garden  Cities.  All  these  will  help  to  reach  the  cause. 
Every  effort  put  forth  to  reduce  poverty,  crime,  and  social  disease,  will 
help  to  solve  the  problem  of  dependency. 

3.  Those  really  dependent  can  best  be  provided  for  in  family  homes, 
which  are  much  superior  in  all  respects  to  the  congregate  or  institutional 
methods. 

4.  The  payment  by  the  state  of  sufficient  money  to  make  it  possi- 
ble to  keep  the  child  in  its  own  family  home,  or  in  the  home  of  a  relative, 
is  the  best  plan  when  practicable. 

3.  I  advocate  state  supervision  of  institutions  by  trained  experts; 
the  placing-out  of  institutional  children  in  homes;  supervision  in  both 
institutions  and  homes  to  be  continuous  through  a  series  of  years.  It 
is  no  doubt  true  that  there  is  a  childless  home  for  every  homeless  child. 

Los  Angeles,  December,  191 1. 

Hon.  W.  Almont  Gates  of  Sebastopol,  California,  until 
recently  was  secretary  of  the  state  board  of  charities  and  correc- 
tions,  having  held  this  position  for  several  years.  He  had  long  and 
valuable  experience  in  eastern  states  before  removing  to  California 
and  proved  himself  a  strong,  capable,  and  efficient  executive 
officer  of  a  most  influential  and  important  state  department. 
His  outline  of  present  conditions,  and  the  matters  relating  to  the 
new  laws,  is  significant  and  promises  great  changes  for  the  better 
in  the  near  future. 

The  legislature  of  this  state  at  its  last  regular  session  enacted  two 
laws  which  will  materially  affect  the  work  of  the  children's  institutions 
of  California.  One  of  these  was  the  following  section  added  to  the  law 
creating  a  State  Board  of  Charities  and  Corrections: — 

"Sec.  5.  The  board  is  hereby  empowered  and  authorized,  and  it 
shall  be  its  duty  as  a  whole,  or  by  committee,  or  by  its  secretary,  to  inves- 
tigate, examine,  and  make  reports  upon  all  institutions  or  persons  receiving 
any  state  aid  for  the  care  of  orphan,  half-orphan,  abandoned  or  dependent 
children,  and  may  prescribe  forms  of  record  thereof  to  be  kept,  and  require 
reports  thereof." 

This  section  gives  the  State  Board  of  Charities  supervision  over 
all  orphan  asylums  receiving  state  aid,  and  that  means  all  the  orphan 
asylums.  Under  this  law,  the  Board  will  inspect  and  report  upon  all 
of  these  institutions  and  will  require  statistical  reports  from  the  insti- 
tutions. It  is  the  intention  of  the  Board  to  commence  its  statistical 
reports  July  i,  191 1. 

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CHILD   WELFARE    WORK    IN    CALIFORNIA 

The  Board  hopes  also  to  improve  this  class  of  institutions  and  will 
insist  that  those  continuing  in  this  work  shall  maintain  a  good  standard. 
The  Board  desires  ample  care  and  training  for  all  those  children  that 
must  remain  in  institutions,  and  hopes  to  have  placed  into  family  homes 
those  who  are  capable  of  being  so  placed. 

The  second  law  referred  to  is  one  which  places  the  work  of  home- 
finding  and  child-placing  under  the  supervision  of  the  State  Board  of 
Charities.     This  is  Chapter  569  of  the  Statutes  of  191 1. 

This  law  provides  that — 

"No  organization,  society  or  persons  shall  engage  in  the  work  of 
placing  dependent  children  into  homes  in  this  state,  without  first  obtaining 
a  permit  therefor,  duly  executed  in  writing,  from  the  state  board  of  char- 
ities and  corrections." 

The  law  further  provides  for  investigation  and  inspection,  and  the 
requiring  of  reports,  of  such  societies,  and  the  prescribing  of  rules  and 
regulations  for  the  conduct  of  their  work.  It  is  further  made  a  misde- 
meanor to  engage  in  the  work  of  placing  children  into  homes,  or  the  solicit- 
ing of  money  therefor,  without  such  permit  being  first  secured. 

The  State  Board  of  Charities  has  so  far  issued  but  five  permits,* 
but  the  state-wide  work  of  placing  children  into  homes  has  been  narrowed 
down  to  two  societies.  The  Board  has  insisted  as  conditions  precedent 
to  engaging  in  this  work,  the  following: — 

I  St.  That  the  society  engaging  in  the  work  has  the  organization 
and  equipment  necessary  to  carry  on  the  work  in  a  proper  manner,  with 
good  assurances  of  continuance. 

2nd.  That  proper  records  be  kept,  so  that  in  the  future  any  child 
coming  into  its  hands,  can,  if  necessary,  be  traced  and  located. 

3rd.  That  care  be  exercised  in  the  selection  of  homes  in  which 
children  are  to  be  placed,  and  in  so  placing  the  child  that  the  home  and 
the  child  shall  fit  each  other. 

4th.  That  proper  supervision  of  the  child  in  its  new  home  be 
given,  so  that  the  welfare  of  the  child,  its  growth,  education  and  training 
will  be  secured. 

The  Board  believes  that  the  best  place  to  rear  a  child  is  a  good  home, 
and  it  believes  that  as  the  years  go  by,  the  number  of  dependent  children 
in  the  orphan  asylums  will  decrease,  and  the  number  of  such  children 
being  reared  in  good  foster  homes  will  increase,  to  the  advantage  of  the 
dependent  child  and  the  state. 
San  Francisco,  December,  1911. 

*  In  July,  1915,  nine  permits  were  in  force.     See  pp.  60-70. 

212 


CHAPTER   XXIII 
SUGGESTIONS  AND   RECOMMENDATIONS 

SOCIAL  and  scientific  studies  of  single  institutions,  or  of 
limited  groups  of  institutions,  by  trained  agents,  are  now 
frequently  made  in  the  more  progressive  states.  Efforts 
to  exhibit  and  coordinate  the  child  welfare  work  of  an  entire  state 
are  comparatively  new,  few  in  number,  somewhat  difficult,  and  cost 
much  in  time,  labor,  and  money. 

So  far  as  can  be  ascertained,  the  Department  of  Child- 
Helping  of  the  Russell  Sage  Foundation  is  the  only  organization 
that  has  ever  covered  the  child-caring  work  of  entire  states  with 
reports  comprehensive  in  scope  and  measurably  complete  in  de- 
tail. As  the  pioneer  in  such  state-wide  studies,  the  Department 
has  set  an  example,  provided  forms  and  precedents,  and  opened 
the  way  for  more  intensive  and  valuable  future  surveys. 

A  number  of  important  matters  so  far  have  received  only 
incidental  treatment,  if  mentioned  at  all  in  the  preceding  chapters. 
In  this  chapter  they  will  be  discussed  briefly  in  the  hope  that 
these  paragraphs  will  stimulate  thought  and  action  along  some 
lines  of  greatest  need. 

I.  Case  Study.  The  careful  investigation  of  every  case 
where  the  dependency  of  a  child  or  a  family  of  children  is  under 
consideration,  is  no  longer  a  matter  of  choice  but  of  necessity. 
Social  welfare  work  has  progressed  to  the  point  where  neglect 
of  case  study  by  an  agency  or  an  institution  is  counted  almost 
criminal.  It  is  not  enough  to  accept  statements  of  alleged  facts 
by  persons  most  interested  in  having  the  child  accepted  by  the 
agency  or  admitted  to  the  institution.  Personal  investigation  of 
the  child  and  its  family,  the  conditions  and  the  environment,  by 
trained  or  experienced  agents,  is  now  required  by  the  practically 
unanimous  voice  of  the  social  service  world. 

In  the  past,  limited  inquiries  generally  were  made  by  the 
superintendents  or  matrons  of  orphanages  and  homes,  or  the  gov- 

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CHILD   WELFARE   WORK    IN    CALIFORNIA 

erning  board's  committee  on  admission,  composed  of  volunteers 
who  seldom  were  trained  for  such  delicate  tasks,  and  who  usually 
had  no  time  properly  to  make  the  investigation.  Admission  was 
granted  when  this  superficial  study  of  the  circumstances  seemed 
to  warrant  it.  Even  when  the  inquiry  was  made  by  a  paid  worker, 
it  was  often  with  little  conception  of  the  problems  involved  or 
how  it  should  be  undertaken.  The  result  was  the  admission  of 
thousands  who  should  never  have  entered  institutional  life  at 
all,  and  very  often  their  entrance  into  institutions  utterly  unfit  to 
provide  in  the  best  way  for  them. 

The  new  method,  which  must  have  right  of  way  everywhere, 
calls  for  careful  preliminary  study  by  experts,  efforts  to  solve  family 
and  home  problems,  and  to  preserve  family  life  whenever  it  is 
possible;  and  for  the  children  really  homeless,  neglected,  defective, 
or  delinquent,  custodial  or  other  care  of  precisely  the  sort  re- 
quired, determined  according  to  age,  physical  condition,  and 
general  needs. 

2.  Co-OPERATION.  To  the  popular  mind  the  term  co-opera- 
tion  is  almost  as  indefinite  as  the  term  social  service,  and  causes 
much  confusion  of  ideas  because  of  its  indiscriminate  use.  Miss 
Virginia  McMechen  of  Seattle  says  in  a  letter:  "The  crudest  form 
of  co-operative  effort  is  represented  by  friendly  intercourse.  The 
second  stage  is  where  agencies  begin  to  recognize  difference  in 
function,  and  to  refer  to  its  proper  agency  work  that  falls  within 
its  legitimate  province.  The  third  stage  is  where  all  the  agencies 
do  things  together." 

The  first  stage  already  has  been  reached  by  the  majority  of 
agencies  and  institutions.  The  second  stage  has  been  reached  by 
a  few,  and  even  among  them  much  unnecessary  waste  and  com- 
petition yet  remain.  Almost  everywhere  the  third  stage  is  yet 
a  dream  of  the  future. 

One  of  the  essentials  of  real  progress  in  child-helping  is  the 
abandonment  of  competition  and  the  substitution  of  co-operation. 
Each  agency  and  institution  must  establish  a  field  and  function  in 
and  to  which  its  activities  shall  be  limited.  To  escape  unneces- 
sary duplication,  and  to  properly  cover  all  fields,  this  selection 
must  be  by  mutual  agreement  among  similar  or  related  organi- 
zations.    The  child-placing  agencies  will  specialize  on  their  func- 

214 


SUGGESTIONS    AND    RECOMMENDATIONS 

tion;  and  the  institutions  for  permanent  care  will  coordinate  them- 
selves for  work  in  behalf  of  different  classes  of  children,  the  invalid 
or  crippled,  the  feeble-minded,  the  wayward  and  delinquent,  those 
requiring  social  training,  and  those  needing  the  aid  of  special 
vocational  schools. 

As  far  as  possible  the  agencies  and  institutions  of  every 
community,  and  indeed  every  state,  should  be  so  related  as  to 
supplement  one  another,  and  unitedly  to  meet  the  needs  of  all 
classes  of  dependents.  The  day  of  the  old-time  poorhouse  as  a 
catch-all  for  all  sorts  of  wrecked  humanity  is  done.  The  sun  has 
set  on  even  the  old-fashioned  orphanage  for  all  classes  of  de- 
pendent children.  The  day  of  specialization  and  limited  function 
has  dawned.  It  is  wise  to  accept  the  fact,  and  readjust  institu- 
tional work  on  the  co-operative  basis  required  by  present  day 
needs  and  methods. 

3.  Cottage  and  Congregate  Institutions.  Practically 
everywhere  it  is  now  conceded  that  for  the  care  of  children  the 
large  congregate  institution  is  not  as  desirable  as  the  cottage  in- 
stitution. The  congregate  type  necessarily  compels  the  objection- 
able "mass  care"  of  children,  which  prevents  the  study  and 
development  of  individuality.  Only  in  well-arranged  and  equipped 
cottage  plants  is  it  possible  to  have  "care  and  spirit  in  imitation  of 
ordinary  family  life." 

In  California  the  original  orphanages  and  homes  were  nearly 
all  of  the  congregate  type.  Those  founded  more  recently  are 
largely  of  the  cottage  type.  Those  in  which  outworn  buildings 
^are  being  replaced  with  new  structures  are  mainly  erecting  groups 
of  cottages  instead  of  great  congregate  buildings.  There  is  a  rapid 
addition  of  cottage  buildings  to  the  costly  plants  of  the  state 
schools.  The  new  California  School  for  Girls  at  Ventura  is  a 
cottage  institution.  More  slowly,  for  want  of  funds,  but  surely, 
a  like  change  is  taking  place  in  the  private  institutions  for  de- 
pendents. The  large  amounts  already  invested  in  congregate 
buildings,  which  can  not  be  disposed  of  to  advantage,  in  many 
cases  prevent  such  changes  even  where  the  management  would  be 
glad  to  inaugurate  them. 

Leading  examples  of  the  accomplishment  of  this  desirable 
change  may  be  mentioned.     The  Los  Angeles  Orphans'  Home  in 

215 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

191 1  abandoned  a  downtown  congregate  plant  with  a  capacity  of 
250,  and  erected  on  a  suburban  tract  a  fine  cottage  plant  with  a 
capacity  of  91,  at  a  cost  of  $100,000.  The  Sacramento  Orphan- 
age and  Children's  Home  left  a  downtown  congregate  plant  a 
few  years  ago  and  located  the  institution  on  a  suburban  farm  at 
Palmetto  Heights,  in  a  good  cottage  plant  valued  at  $116,000, 
with  a  capacity  of  200.  St.  Francis'  Orphanage  at  Watsonville, 
the  second  largest  Catholic  institution  for  boys  in  the  state,  after 
over  forty  years  of  operation  in  typical  congregate  buildings,  is 
this  year  (191 5)  erecting  modern  cottages  to  house  about  400 
boys,  at  a  cost  of  several  hundred  thousand  dollars.  It  is  hoped 
and  believed  that  many  other  institutions.  Catholic  and  non- 
Catholic,  soon  to  replace  old  structures  with  new  ones,  will  follow 
these  examples  and  provide  the  best  modern  type  of  cottage  build- 
ings to  house  their  youthful  wards. 
^  4.  Education  of  Institutional  Children.  The  edu- 
/  cation  of  children  in  the  homes  and  orphanages  varies  greatly  in 
methods  and  efficiency.  For  religious  reasons  the  Catholics  and 
some  others  conduct  special  schools  within  the  institutions.  In  a 
few  cases  the  institution  provides  a  building  and  the  city  or  county 
provides  and  pays  the  teachers.  A  growing  number  of  institu- 
tions send  their  wards  to  the  public  schools  where,  by  their  min- 
gling with  other  pupils,  they  receive  marked  stimulus  to  progress, 
in  most  cases  a  better  education  and,  not  least  in  importance,  are 
brought  into  intimate  association  with  children  reared  in  normal 
,  family  life. 

The  institutions  most  faulty  in  construction,  and  whose  phy- 
sical and  medical  care  of  their  wards  is  very  imperfect,  often  find 
public  school  training  impossible  because  of  frequent  quarantine 
on  account  of  contagious  diseases.  Such  are  obliged  to  maintain 
schools  of  their  own,  and  they  are  generally  poor  in  equipment 
and  lacking  in  efficiency.  There  should  be  some  way  to  bring 
their  educational  facilities  up  to  the  standard  of  the  public  schools, 
if  their  wards  can  not  be  made  pupils  of  the  public  schools  them- 
selves. It  is  fair  to  say  that  the  educational  equipment  of  some 
institutions  is  of  high  order,  and  their  school  work  apparently 
excellent. 

5.  Feeble-minded  Children.     The  special  study  and  at- 

216 


SUGGESTIONS    AND    RECOMMENDATIONS 

tention  now  being  given  to  the  mentally  defective  and  backward 
classes  is  one  of  the  remarkable  incidents  of  the  present  social  age. 
Feeble-mindedness  is  intimately  related  to  dependency  and  the 
whole  subject  of  adequate  provision  for  needy  and  neglected 
children.  This  manual  would  lack  a  material  feature  if  it  failed  to 
outline  the  causes  and  conditions  leading  to  imbecility,  and  the 
existing  and  proposed  preventive  and  remedial  agencies  within 
the  state  of  California. 

A  quotation  or  two  from  leading  authorities  will  indicate 
the  importance  of  the  theme,  and  its  relations  to  dependency  and 
delinquency.     Dr.  Walter  S.  Cornell  of  Philadelphia  says : 

Feeble-mindedness  may  be  defined  as  original  lack  of  normal  mental 
capacity.  By  "original"  is  meant  before  the  end  of  the  child  period  or 
about  the  twelfth  year,  although  actually  95  per  cent  of  the  feeble-minded 
are  born  so  because  of  hereditary  influences  or  injury  to  the  head  during 
labor.  By  "normal  capacity"  is  meant  approximately  the  mental  capac- 
ity of  an  11  or  12  year  old  person.* 

The  feeble-minded  are  usually  classified  into  two  groups: 
the  degenerates  and  the  accidental  cases.  Dr.  Cornell  declares 
that  over  one-half  of  all  the  feeble-minded,  and  certainly  three- 
fourths  of  all  those  found  as  state  charges  in  our  public  institutions, 
are  degenerates.  These  represent  the  running  down  of  the  human 
stock,  and  the  poorly  formed  brain  is  usually  paralleled  by  num.er- 
ous  defects  of  other  organs  of  the  body.  All  over  the  country 
feeble-mindedness  is  an  increasing  peril  to  modern  civilization. 

There  is  an  inclination  throughout  the  country  to  accept 
one  in  every  300  as  an  approximate  ratio  of  feeble-minded  persons 
to  the  general  population.  By  the  census  of  1910  California's 
population  is  2,377,549.  At  the  ratio  above  given  there  would 
be  7,925  feeble-minded  persons  within  the  state. 

As  provision  for  the  custodial  care  of  these  8,000  imbeciles  1 
there  is  but  one  institution,  the  Sonoma  State  Home,  with  a  present  | 
capacity  of  1,070  inmates. 

The  7,000  not  in  institutional  care  are  mainly  in  the  homes 
of  the  people.  It  is  estimated  that  at  least  25  per  cent  of  all 
inmates  of  the  state  reform  schools  are  mentally  deficient.     There 

*  Cornell,  Walter  S.:  The  Feeble-minded  World,  p.  i.  Philadelphia,  De- 
partment of  Public  Health  and  Charities,  1911. 

217 


CHILD   WELFARE    WORK    IN    CALIFORNIA 

are  also  in  the  aggregate  a  large  number  in  the  orphanages  and 
homes.  Everywhere  they  are  a  depressing  factor  in  family, 
school,  and  institutional  life,  and  detrimental  to  the  welfare  of  the 
normal  children  with  whom  they  associate.  There  is  no  doubt 
that  the  entire  state  would  be  relieved  and  benefited  by  institu- 
tional provision  for  at  least  5,000  imbeciles. 

What  would  it  cost  to  erect  several  suitable  plants  to  ac- 
commodate 4,000  more  of  this  unfortunate  class?  On  the  basis 
of  the  present  valuation  and  capacity  of  the  Sonoma  State  Home, 
about  ^700  per  bed,  or  $2,800,000.  This  sum,  or  a  part  of  it, 
should  be  appropriated  at  the  earliest  possible  date,  and  work 
begun  at  once  in  behalf  of  these  unfortunates  and  for  the  pro- 
tection of  the  rest  of  the  people. 

Experts  declare  that  the  numbers  of  the  feeble-minded  are 
rapidly  increasing;  that  imbecility  is  largely  constitutional  or 
hereditary;  that  the  feeble-minded  are  two  or  three  times  more 
prolific  than  people  of  good  mentality;  that  feeble-mindedness 
can  be  checked  and  ultimately  nearly  abolished  by  proper  pre- 
ventive measures  and  custodial  care;  and  that  custodial  care  for 
all  imbeciles  of  procreative  or  child-bearing  age  constitutes  the 
most  humane  provision  for  the  unfortunates  themselves  and  for 
society  at  large.  For  these  reasons  it  is  urged  that  California  set 
an  example  for  the  rest  of  the  Union  by  making  adequate  institu- 
tional provision  for  this  class. 

In  a  personal  letter  from  William  J.  G.  Dawson,  medical 
superintendent  of  Sonoma  State  Home,  under  date  of  July  15, 
1 9 14,  are  the  following  interesting  statements: 

I  agree  with  you  that  there  is  great  need  for  a  large  increase  in  the 
institutional  provision  for  the  care  of  the  feeble-minded  all  over  the 
country.  In  California  there  is  only  one  institution  for  the  care  of  this 
unfortunate  class.  There  has  been  some  talk  of  starting  a  new  home  in 
the  southern  part  of  the  state,  and  I  believe  that  the  time  has  arrived 
when  another  institution  should  be  built.  In  1910,  according  to  the  cen- 
sus, it  was  estimated  that  there  were  nearly  8,000  feeble-minded  in  Cali- 
fornia who  should  be  receiving  institutional  care. 

In  our  institution  we  have  about  284  epileptics.  They  should  be 
colonized,  and  not  allowed  to  mix  indiscriminately  with  the  feeble-minded. 
There  should  be  more  buildings  to  house  the  feeble-minded  here,  so  that 

218 


SUGGESTIONS    AND    RECOMMENDATIONS 

the  different  grades  could  be  better  segregated.  Our  waiting  list  is  now 
132,  and  a  large  number  of  applicants  should  at  once  be  admitted.  We 
have  nearly  completed  a  Nursery  Building  for  males,  and  when  it  is  ready 
for  occupancy  we  will  be  able  to  receive  about  50  of  those  now  waiting. 

In  my  opinion  there  are  only  three  ways  of  solving  the  problem 
of  how  to  prevent  the  increase  of  feeble-mindedness  and  kindred  diseases: 

1.  By  compelling  the  parents  or  friends,  where  they  have  such,  to 
take  care  of  their  children  up  to  the  age  of  puberty;  then  to  have  them 
committed  to  institutions,  set  apart  for  the  purpose,  there  to  remain  during 
the  child-bearing  period. 

2.  By  a  regular  system  of  sterilization  of  all  positively  feeble- 
minded persons. 

3.  By  the  compulsory  permanent  commitment  to  institutions  by 
the  courts  of  the  whole  number  known  to  exist. 

The  first  is  the  most  practical.  The  second,  sterilization,  it  is 
true  will  prevent  procreation,  but  will  also  have  a  tendency  to  increase 
prostitution.  Again,  the  inmates  of  an  institution  do  not  require  to  be 
sterilized,  as  they  are  protected,  but  rather  those  who  are  out  in  the 
world;  and  this  would  be  a  difficult  proposition  to  carry  out  successfully. 
The  third  way  is  impracticable  as  the  expense  would  be  too  great.  No 
state  has  yet  provided  sufficient  buildings  to  house  more  than  a  small 
per  cent  of  the  cases  known  to  exist. 

Our  institution  has  been  granted  an  appropriation  for  a  cottage  for 
female  epileptics.  We  have  used  the  "Wasserman"  test  on  1,253  inmates, 
of  whom  only  59  gave  positive  reaction.  We  are  using  the  "Tuberculin" 
tests  in  suspected  cases  of  tuberculosis.  We  also  began  the  "Binet" 
tests  in  October,  1913,  and  are  now  continuing  these  tests  by  experts 
representing  the  universities  of  California  and  Stanford.  You  may  use 
any  of  this  information  for  your  section  in  regard  to  the  feeble-minded 
in  California. 

6.  Housing  and  Dependency.  Social  experts  all  agree  that 
housing  is  closely  related  to  dependency  and  delinquency.  Bad 
housing  is  the  hub  of  home  destruction.  Some  of  the  spokes 
attached  to  the  bad  housing  hub  are: 

(i)  Bad  Environment.  Poor  houses  and  tenements  are  usually 
grouped  together.  They  are  generally  tenanted  not  merely  by  the  poor 
but  also  the  vicious.  This  close  association  of  the  indigent  and  the  de- 
praved elements  disintegrates  family  life.     It  is  ruinous  to  character. 

(2)  Unsanitary  Conditions.  These  are  nearly  always  found  in 
country  shacks  and  city  tenements.     Unsanitary  conditions  devitalize 

219 


CHILD   WELFARE   WORK    IN    CALIFORNIA 

both  parents  and  children.  Gloom,  smells,  noxious  gases,  the  vulgariza- 
tion of  crowded  rooms  and  buildings,  react  on  health  and  spirits.  Life 
currents  ebb  and  flow  generally  with  the  major  influences  of  home  condi- 
tions. 

(3)  Physical  and  Mental  Depression.  A  child  is  physically  the 
product  of  combined  formative  influences.  One  child  in  every  five  dies 
during  the  first  year  of  life;  in  slums  and  tenements,  one  in  three.  Bad 
housing  is  the  enemy  of  life.  The  mental  development  of  children  is  al- 
most equally  hindered  by  bad  housing.  There  is  neither  stimulus  nor 
chance  for  the  mind  to  grow  when  the  home  is  a  cellar,  a  garret,  a  single 
unlighted  room,  or  a  mere  shack  in  an  evil  location. 

(4)  Decency  and  Self-respect  Destroyed.  The  crowded  tene- 
ments where  whole  families  live,  cook,  eat,  sleep,  dress  and  undress  with- 
out privacy,  often  all  in  a  single  room,  are  death  to  decency.  The  prime 
requisite  of  morals  is  self-respect.  This  is  impossible  where  seven  to  ten 
people  of  all  ages  and  both  sexes  live  and  sleep  in  the  same  room. 

(5)  Murder  of  Morality.  Lack  of  privacy,  the  crowding  of 
boys  and  girls  even  up  to  their  teens  in  the  same  beds,  kills  all  sense  of 
morality.  Probation  officers  testify  that  many  street-walking  prostitutes 
come  from  such  overcrowded  homes. 

(6)  Misspent  Energy.  The  abundant  energy  of  childhood,  rightly 
liberated  in  wholesome  play,  results  in  physical  and  mental  good;  but 
liberated  in  slum  associations  it  results  in  evils,  petty  vices,  malicious  mis- 
chief, and  practices  that  in  an  adult  would  be  termed  crimes.  Where 
there  is  building  congestion  or  tenement  conditions  there  are  no  places  for 
normal  play,  and  a  large  per  cent  of  juvenile  court  cases  come  from  the 
children  of  such  environment. 

(7)  Need  Emphasized.  No  number  of  reformative  agencies,  char- 
ities, courts,  probation  officers,  improved  forms  of  government,  child 
hygiene  societies,  anti-tuberculosis  associations,  child  labor  organizations, 
or  even  churches,  will  avail  anything  to  check  child-dependency  and  delin- 
quency if  the  physical  conditions  of  the  home  are  neglected  and  we  fail  to 
provide  for  our  poor  people  decent  houses  and  elevating  environment.* 

7.  Juvenile  Court  Law.  The  law  approved  by  the  gov- 
ernor June  16,  191 3,  is  a  marked  advance  on  much  previous  legis- 
lation along  this  line.  The  definitions  of  the  different  classes 
affected  by  the  law — neglected,  dependent,  and  delinquent  children 

*See  A  Child  Welfare  Symposium,  p.  7.  Article  by  Bernard  J.  Newman 
on  Housing  Conditions  and  Child  Dependency.  New  York,  Russell  Sage  Founda- 
tion, 191 5. 

220 


SUGGESTIONS    AND    RECOMMENDATIONS 

— are  so  complete  and  pertinent  that  they  are  here  quoted  for  the 
information  of  CaHfornians  and  others  who  may  be  interested. 

Sec.  I.  This  act  shall  be  known  as  the  "Juvenile  court  law"  and 
shall  apply  only  to  persons  under  the  age  of  twenty-one  years  and  not  now 
or  hereafter  inmates  of  a  state  institution. 

Sec.  2.  Within  the  meaning  of  this  act  the  words  "neglected 
person"  shall  include  any  person: 

(i)  Whose  home  by  reason  of  neglect,  cruelty  or  depravity  of  his 
parents  or  either  of  them,  or  on  the  part  of  his  guardian,  or  on  the  part  of 
the  person  in  whose  care  or  custody  he  may  be,  is  an  unfit  place  for  such 
person ;  or 

(2)  Whose  father  is  dead  or  has  abandoned  his  family  or  is  an 
habitual  drunkard,  and  it  appears  that  such  person  is  destitute  of  a  suit- 
able home,  or  of  adequate  means  of  obtaining  an  honest  living,  and  is  in 
danger  of  being  brought  up  to  lead  an  idle  and  dissolute,  or  immoral  life; 
or 

(3)  Who  has  not  the  proper  care  and  discipline  essential  to  the 
welfare  of  such  person,  and  who  is  without  parent  or  guardian  able  or 
willing  to  give  such  care  and  enforce  such  discipline;  or 

(4)  Who,  being  under  the  age  of  sixteen  years,  is  found  wandering 
and  not  having  any  home  or  settled  place  of  abode,  or  any  visible  means  of 
subsistence;  or 

(5)  Who,  being  under  the  age  of  fifteen  years,  is  in  condition  of 
extreme  want,  and  is  without  parent  or  other  person  able  and  willing  to 
maintain  such  person;  or 

(6)  Who,  being  under  the  age  of  fifteen  years,  is  found  begging,  or 
receiving  or  gathering  alms  in  any  street,  road  or  public  place,  or  who 
is  there  for  the  purpose  of  so  doing,  whether  actually  begging  or  doing  so 
under  pretext  of  peddling,  or  selling  any  article  or  articles,  or  singing  or 
playing  any  musical  instrument,  or  giving  any  public  entertainment  in 
such  street,  road  or  public  place,  or  who  accompanies  or  is  used  in  aid  of 
any  person  so  doing. 

Sec.  2a.  It  is  hereby  provided  that  no  person  shall  be  dealt  with 
under  this  act  as  a  neglected  person  who  properly  can  be  dealt  with  under 
any  other  law  of  the  State  of  California  now  or  hereafter  in  force  provid- 
ing for  the  placing,  care  and  custody  of  neglected  persons. 

Sec.  3.  Within  the  meaning  of  this  act  the  words  "dependent 
person"  shall  include  any  person: 

(i)  Who  has  no  parent  or  guardian  willing  to  exercise,  or  capable 
of  exercising  proper  paternal  control,  and  for  the  want  of  such  proper 
paternal  control  such  person  is  wayward  and  addicted  to  vicious  habits, 

221 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

and  is  in  danger  of  being  brought  up  to  lead  an  idle  and  dissolute,  or  im- 
moral life;  or 

(2)  Who  knowingly  associates  with  thieves  or  other  vicious  or  im- 
moral persons;  or 

(3)  Who  is  found  living  or  being  in  any  house  of  prostitution  or 
assignation,  knowing  at  the  time  that  such  house  is  a  house  of  prostitu- 
tion or  assignation;  or 

(4)  Who  habitually  visits,  without  parent  or  guardian,  any  billiard 
room  or  pool  room,  or  any  saloon,  or  place  where  any  spirituous,  vinous 
or  malt  liquors  are  sold,  bartered  or  given  away;  or 

(5)  Who  is  incorrigible,  that  is,  who  is  beyond  the  control  and 
power  of  his  parents,  guardian  or  custodian  by  reason  of  the  vicious  con- 
duct or  nature  of  said  person;  or 

(6)  Who  is  an  habitual  truant  within  the  meaning  of  an  act  entitled 
"An  act  to  enforce  the  educational  rights  of  children  and  providing  penal- 
ties for  the  violation  of  said  act,"  approved  March  24,  1903,  and  any  act 
or  acts  amending  or  superseding  the  same,  and  who  is  not  placed  in  a 
parental  school  under  the  provision  of  said  act,  or  who  being  over  the  age 
of  fifteen  years  refuses  to  attend  public  or  private  school  as  directed  by 
his  parents,  guardian  or  custodian;  or 

(7)  Who  habitually  uses  intoxicating  liquor  as  a  beverage;  or,  who 
habitually  smokes  cigarettes;  or,  who  habitually  uses  opium,  cocaine, 
morphine  or  other  similar  drug,  without  the  direction  of  a  competent 
physician;  or 

(8)  Who  from  any  cause  of  personal  depravity  is  in  danger  of  grow- 
ing up  to  lead  an  idle  and  dissolute,  or  immoral  life. 

Sec.  4.  Within  the  meaning  of  this  act  the  word  "delinquent  per- 
son "  shall  include  any  person  who  violates  any  law  of  this  state,  or  any 
ordinance  of  any  town,  city,  county,  or  city  and  county  of  this  state,  de- 
fining crime,  and  which  involves  moral  turpitude. 

The  provision  for  jurisdiction  under  this  act  is  in  line  with 
the  experience  of  other  states.  In  Pennsylvania  and  some  other 
commonwealths  the  juvenile  courts  have  been  at  a  great  disad- 
vantage because  there  was  no  settled  plan  of  jurisdiction,  and  in 
the  large  cities  there  was  even  a  monthly  change  of  judges.  The 
California  provision  is: 

Sec.  5.  The  superior  court  in  every  county  of  this  state  shall 
exercise  the  jurisdiction  conferred  by  this  act,  and,  while  sitting  in  the 
exercise  of  its  jurisdiction,  shall  be  known  and  referred  to  as  the  "juvenile 
court,"  and  is  hereinafter  so  referred  to.     In  counties  having  more  than 

222 


SUGGESTIONS    AND    RECOMMENDATIONS 

one  judge  of  the  superior  court,  the  judges  of  such  court  shall  annually 
designate  one  or  more  of  their  number  whose  duty  it  shall  be  to  hear  all 
cases  coming  under  this  act;  provided,  that  no  judge  shall  be  designated  to 
serve  in  such  capacity  for  less  than  one  year;  and  that  no  judge  shall  be 
designated  to  serve  in  such  capacity  who  has  already  or  shall  hereafter 
have  served  for  three  consecutive  years,  until  an  interval  of  one  year  has 
elapsed. 

There  are  carefully  arranged  sections  relating  to  methods  of 
procedure,  probation  committees,  probation  officers,  support  of 
wards  of  the  court,  and  detention  homes.  The  provision  for  de- 
tention homes  is  mandatory,  and  necessarily  will  lead  to  the 
speedy  establishment  of  these  homes  in  every  county  of  the  state. 
This  important  and  interesting  section  is  as  follows: 

Sec.  27.  It  shall  be  the  duty  of  the  legislative  body  of  every  county, 
or  city  and  county,  immediately  upon  this  act  becoming  effective,  to 
provide  and  thereafter  maintain,  at  the  expense  of  such  county,  or  city 
and  county,  in  a  location  approved  by  the  judge  of  the  juvenile  court,  a 
suitable  house  or  place  to  be  known  as  the  "detention  home"  of  said 
county,  or  city  and  county,  for  the  detention  of  dependent  and  delin- 
quent persons.  Such  detention  home  must  not  be  in,  or  connected  with, 
any  jail  or  prison,  and  shall  be  conducted  in  all  respects  as  nearly  like  a 
home  as  possible  and  shall  not  be  deemed  to  be  or  treated  as  a  penal  in- 
stitution.* 

8.  Laws  to  be  Codified.  The  laws  relating  to  children  in 
California,  as  in  most  other  states,  are  chaotic,  and  in  some  cases 
contradictory.  The  social  workers  who  are  obliged  to  work 
under  them,  and  especially  those  who  are  connected  with  court 
proceedings  in  behalf  of  children,  are  often  at  a  loss  to  know 
which  law  applies  to  the  case  in  hand,  or  to  define  the  rights  and 
duties  of  the  child  or  the  organization.  Some  of  these  obscuri- 
ties are  cleared  up  in  the  juvenile  court  law  of  1913,  but  many 
others  remain.  There  is  a  growing  feeling  over  the  state  that  the 
laws  relating  to  children  should  be  carefully  codified  into  a  con- 
nected and  harmonious  system.  H.  W.  Lewis,  formerly  super- 
intendent of  the  Children's  Home  Society  of  California,  said  in 

*  A  volume  entitled  Summary  of  State  Laws  Relating  to  the  Dependent 
Classes,  published  by  the  Bureau  of  the  Census,  summarizes  the  laws  relating  to  de- 
pendent children,  and  can  be  obtained  on  request  from  the  Department  of  Commerce, 
Bureau  of  the  Census,  Washington,  D.  C. 

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CHILD    WELFARE    WORK    IN    CALIFORNIA 

a  letter:  "  I  should  certainly  be  in  favor  of  a  codification  of  the  laws 
of  California  relating  to  children.  They  are  now  in  a  confused  and 
contradictory  state." 

The  object  lesson  set  by  the  state  of  Ohio  is  cited  as  an  ex- 
ample of  what  a  state  can  do  on  this  line  and  how  to  accomplish  it. 
The  Ohio  legislature  appointed  a  special  commission  consisting 
of  three  members,  appropriated  money  for  their  expenses,  and 
gave  them  a  year  to  study  the  subject  and  bring  in  a  report. 
The  commission  visited  many  states,  made  an  exhaustive  study  of 
laws,  methods  of  care  and  conditions  relating  to  dependent,  de- 
linquent, and  defective  children,  and  upon  all  this  based  a  chil- 
dren's code  for  the  state  of  Ohio.  The  next  legislature  accepted 
and  enacted  the  code  thus  formulated,  with  only  a  few  unimportant 
amendments.  Other  states  are  expected  to  follow  the  lead  of 
Ohio  in  this  matter,  and  California  might  well  be  among  the  first 
to  do  so. 

9.  Widows'  Pensions.  There  are  now  mothers'  pension 
laws  in  operation  in  at  least  a  score  of  states,  and  the  question  is 
being  considered  in  many  others.  In  191 3  the  California  legis- 
lature amended  the  law  granting  state  aid  to  orphan,  half-orphan, 
and  abandoned  children  by  adding  the  following  paragraph  which 
constitutes  its  so-called  mothers'  pension  law: 

Provided,  that  in  addition  to  the  amount  paid  by  the  state  for 
each  half-orphan  maintained  at  home  by  its  mother,  the  county,  city  and 
county,  city,  or  town  may  pay  for  the  support  of  such  half-orphan  an 
amount  equal  to  the  sum  paid  by  the  state;  and  provided,  further,  that  in 
any  case  where  any  such  half-orphan  is  denied  aid  by  the  county,  upon  a 
petition  setting  forth  the  facts  in  full  as  to  the  necessity  of  aid,  verified  by 
five  reputable  citizens  of  the  county,  city  and  county,  city,  or  town,  the 
mother  of  such  child  shall  have  the  right  of  appeal  direct  to  the  state 
board  of  control  for  aid  for  her  child,  and  should  her  appeal  be  sustained 
by  said  board  payment  must  be  made  for  the  child  as  above  provided.* 

In  effect  this  authorizes  the  local  authorities  to  double  the 
sum  heretofore  available  for  the  care  of  half-orphan  children  aided 
in  the  homes  of  parents  and  relatives.  The  law  was  approved 
May  26,  191 3,  but  as  there  were  numerous  formalities  connected 
with  its  operation,  very  little  application  of  it  was  possible  until 

*  Assembly  Bill  No.  1108,  Chap.  323,  Sec.  i. 

224 


SUGGESTIONS   AND    RECOMMENDATIONS 

1914,  and  no  definite  reports  in  regard  to  work  done  under  it  are 
available,  except  from  San  Francisco  County. 

In  a  pamphlet  published  in  January,  1914,  by  Margaret  C. 
Nesfield,  director  of  the  widows'  pension  bureau  of  San  Francisco 
County,  are  the  following  historic  and  descriptive  paragraphs: 

San  Francisco  was  one  of  the  first  cities  in  the  United  States  to 
undertake  this  aid  for  mothers,  as  five  years  before  the  passage  of  the 
Pension  Bill,  Judge  Frank  J.  Murasky,  of  the  Juvenile  Court,  appreciating 
the  value  of  keeping  the  home  intact  as  far  as  possible,  made  use  of  the 
Juvenile  Court  Act  to  commit  dependent  children  to  the  care  of  their 
needy  mothers  through  the  medium  of  the  various  child-placing  agencies. 
The  Judge's  attitude  in  this  matter  was  made  possible  by  the  generosity 
of  the  City  and  County  of  San  Francisco,  which  probably  pays  more  in 
proportion  to  its  population  than  any  city  in  the  world  for  the  care  and 
maintenance  of  its  dependent  children. 

In  some  of  the  States  the  Mothers'  Pension  Acts  provide  for  the 
maintaining  of  children  with  their  mothers  not  only  in  case  of  widows, 
but  also  in  desertion  cases,  in  cases  where  there  has  been  no  marriage,  and 
in  cases  where  the  father  is  physically  incapacitated  or  in  a  hospital  for 
the  insane  or  some  penal  institution;  there  is  also  some  provision  made  for 
dependent  children  being  boarded  with  relatives.  In  San  Francisco  only 
cases  where  the  father  is  dead  or  in  one  of  the  State  hospitals  or  peniten- 
tiaries are  considered  by  the  Pension  Bureau.  In  all  other  cases  where 
the  need  of  the  mother  is  established,  the  matter  can  be  taken  up  through 
the  Dependency  Department  of  the  Juvenile  Court.  This  is  an  immense 
protection,  particularly  in  cases  of  desertion,  because  while  there  is  no 
injustice  done  to  the  children,  the  State  and  the  City  and  County  are 
protected  from  any  unnecessary  tax.  The  Juvenile  Court  has  the  legal 
equipment  for  following  up  such  cases  and  forcing  delinquent  fathers  or 
relatives  who  are  in  a  position  to  do  so  to  care  for  such  children. 

In  considering  the  applications  and  in  following  them  up  the  value 
of  having  a  trained  nurse  as  a  visitor  is  very  evident.  An  immense  per- 
centage of  the  mothers  and  children  must  be  sent  to  the  various  clinics, 
and  these  cases  are  followed  up  so  that  the  treatment  recommended  may 
be  carried  out.  In  this  way  the  office  works  very  closely  with  the  Asso- 
ciated Charities,  with  the  Tuberculosis  Clinic,  and  with  the  various  chari- 
table organizations. 

In  following  up  the  cases  the  city  has  been  districted,  and  the  visitor 
has  a  book  with  the  names  and  addresses  of  all  the  families  in  each  dis- 
trict, together  with  a  list  of  the  schools,  the  various  church  organizations, 

225 


CHILD   WELFARE    WORK    IN    CALIFORNIA 

day  homes,  playgrounds,  settlements  and  clinics  in  the  neighborhood. 
This  enables  the  office  to  co-operate  closely  with  all  the  organizations  for 
social  betterment. 

The  subsidy  system  has  its  dangers,  as  already  suggested, 
even  when  state  appropriations  to  private  institutions  are  made 
only  on  a  per  capita  basis.  Abuses  can  be  prevented  only  by  ade- 
quate state  supervision.  Outdoor  relief,  which  is  help  given  to 
individuals  outside  of  institutions,  may  possess  even  greater  faults 
and  hazards,  although  for  certain  cases  the  plan  is  economical  and 
advantageous.  Subsidies  are  often  used  to  aid  political  intrigues 
on  a  large  scale;  outdoor  relief  is  as  frequently  the  instrumentality 
for  city  and  county  crookedness,  and  is  used  to  win  votes  and  gain 
partisan  advantage.  In  recent  years  methods  of  state  supervision 
have  so  developed  that  excellent  non-partisan  and  nonsectarian 
service  is  now  possible,  but  so  far  no  adequate  and  satisfactory 
supervision  of  outdoor  relief  has  been  devised.  The  so-called 
"Mothers'  Pensions"  is  a  special  form  of  outdoor  relief,  and  it  is  a 
serious  question  whether  the  present  statute  provides  sufficient 
safeguards  to  properly  defend  communities  against  extravagance 
in  such  service,  and  to  prevent  its  misuse  for  political  purposes. 

As  will  be  seen,  the  present  law  is  only  an  incomplete  addition 
to  an  existing  statute.  Further  legislation  is  expected.  A  com- 
mission was  provided  for  by  the  legislature  of  191 3  to  investigate 
old  age  and  mothers'  pensions.  The  report  of  this  commission  will 
doubtless  pave  the  way  to  more  complete  and  definite  action  by  the 
next  legislature. 

10.  Ratio  of  Workers  to  Institutional  Children.  A 
so-called  economy  of  management,  coupled  with  ignorance  of 
better  methods,  lowers  the  standard  of  service  in  many  institu- 
tions. In  institutions  for  special  care  and  training  social  experts 
find  it  necessary  that  the  regular  workers  average  about  one  to 
every  four  inmates  if  high-class  work  is  to  be  done.  In  some  cases 
the  ratio  may  need  to  be  as  high  as  one  to  three;  in  others,  good 
service  may  be  rendered  with  the  ratio  one  to  five.  In  orphan- 
ages and  children's  homes,  where  ordinary  care  is  given,  the  ratio 
required  is  about  one  worker  to  six  children.  A  study  of  the  153 
orphanages  and  homes  of  Pennsylvania  gave  as  the  average  in  that 
state  one  worker  to  6.2  children. 

226 


SUGGESTIONS    AND    RECOMMENDATIONS 

In  California  the  public  institutions  for  children  average 
one  worker  to  every  5.4  inmates.  The  private  institutions,  79 
in  number,  of  which  four  care  for  delinquents  and  75  for  dependents, 
employ  an  average  of  one  worker  to  every  8.4  children.  A  careful 
study  of  this  matter  in  the  statistical  tables,  noting  individual 
institutions,  groups  and  classes,  and  sectional  totals,  will  be  of 
interest,  and  may  lead  to  desired  changes  in  these  ratios. 

1 1 .  Records  of  Child  Welfare  Work.  Adequate  records 
of  all  child-caring  work,  whether  by  agencies  or  institutions,  are 
as  essential  to  modern  forms  of  service  as  are  temperature  charts  in 
fever  cases.  No  amount  of  personal  devotion  of  officers  or  at- 
tendants, or  excellence  in  quality  of  plant  and  equipment,  can 
diminish  this  need.  Yet  of  all  neglected  matters  in  the  care  of 
dependent  children,  and  failure  on  the  part  of  the  responsible 
parties  to  recognize  their  importance,  the  slighted  and  slouchily 
kept  records  of  the  average  home  or  orphanage  are  preeminent. 

All  through  this  inquiry,  as  it  progressed  in  different  parts 
of  the  state,  the  chaotic  and  unsystematic  condition  of  institu- 
tional records  was  a  constant  challenge  to  the  visitor's  patience, 
and  the  lack  of  uniformity  made  it  almost  impossible  to  obtain 
equivalent  statistics  from  the  different  institutions. 

As  a  matter  of  necessity,  if  the  state  is  to  modernize  its 
work,  new  and  uniform  records  for  the  principal  statistics,  vital 
and  financial,  must  be  required  from  all  child-caring  institutions. 
The  statistics  of  each  child  should  include  careful  records  of  the 
family,  everything  that  can  be  learned  about  the  child  itself, 
including  physical  and  psychological  examinations,  measurements 
and  tests,  careful  statements  of  all  legal  measures  and  relations 
connected  with  reception,  each  action  taken  while  the  child  is  in 
care,  the  school  and  other  development  while  in  the  institution, 
and  the  date,  method,  and  other  particulars  of  final  dismissal 
from  care.  Forms  for  such  and  other  necessary  records  should 
be  adopted  by  the  state  authorities.  To  insure  their  being  prop- 
erly and  constantly  kept  should  be  a  matter  of  statutory  provision 
and  official  supervision.  Only  thus  can  the  rights  and  welfare  of 
the  children,  and  the  best  interests  of  society  at  large,  be  secured 
and  maintained. 

12.  Standardizing   Institutional  Care.    The   standard- 

227 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

izing  of  the  methods  used  and  the  conditions  affecting  child- 
helping  work  in  California  is  greatly  needed.  Institutions  have 
been  founded  to  meet  particular  and  often  limited  needs.  They 
have  grown  up  without  any  vital  relationship  to  one  another. 
They  are  not  connected  with  the  social  problems  of  the  state,  save 
as  they  supply  a  supposed  need  of  housing  and  care.  The  result 
is  an  excessive  number  of  variously  constituted,  unconnected, 
often  competitive,  and  generally  non-co-operative  institutions  in 
all  parts  of  the  state. 

The  following  points  abstracted  from  a  recent  article  by  a 
leading  social  worker  will  indicate  some  of  the  requirements  of  a 
proper  standardization  of  child-helping  institutions: 

1.  Records,  now  deficient  and  imperfectly  kept,  should  be  elab- 
orated and  systematized. 

2.  The  diet,  dining  room  equipment,  clothing,  sleeping  quarters, 
and  bathing  facilities,  should  be  brought  up  to  certain  minimum  require- 
ments. Indexes  of  institutional  conditions,  not  conclusive  but  sugges- 
tive, are  cost  of  plant  per  bed  and  per  capita  cost  of  maintenance. 

3.  Education  in  the  institutions,  where  the  children  can  not  be 
related  directly  to  the  public  school  system,  should  be  brought  up  in 
standard  to  that  of  the  public  schools. 

4.  Physical  and  psychological  examinations  by  experts  should  be 
made  periodically  of  all  children  in  charitable  institutions.  Successive 
examinations  will  aid  in  determining  both  the  quality  of  care,  and  pos- 
sible developments  requiring  special  or  medical  attention. 

5.  There  should  be  sufficient  trained  workers  in  every  institution 
to  adequately  supervise  all  its  activities,  and  enough  attendants  to  per- 
form the  institutional  work  without  unduly  burdening  the  children  old 
enough  to  assist.  It  should  be  noted  that  at  present  the  employes  of 
nearly  all  institutions  are  greatly  overworked  and  badly  underpaid. 

6.  The  standards  of  training,  physical,  mental  and  moral,  to 
develop  the  child's  individuality  and  foster  its  higher  life,  should  be  raised 
and  in  some  measure  made  uniform  throughout  the  state;  but  of  course 
without  interfering  with  denominational  religious  instruction. 

7.  Each  institution  should  limit  its  activities  to  the  work  for  which 
it  is  specifically  organized,  and  for  which  it  has  arranged  its  plant  and 
acquired  its  equipment;  and  each  should  enter  into  cordial  and  systematic 
co-operation  with  other  agencies  and  institutions.* 

*  See  A  Child  Welfare  Symposium,  p.  78.  Article  by  Frank  D.  Witherbee 
on  The  Standardization  of  Institutional  Care.  New  York,  Russell  Sage  Founda- 
tion, 191 5. 

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SUGGESTIONS   AND    RECOMMENDATIONS 

13.  Standardizing  Child-placing  Work.  The  need  of 
well  understood  and  properly  enforced  standards  of  both  methods 
and  the  real  work  of  placing  dependent  children  in  families  must  be 
apparent.  The  minimum  essentials  of  the  system  should  be  es- 
tablished by  the  state  through  its  appropriate  boards.  California 
already  has  a  statute  requiring  a  license,  or  certificate  of  approval, 
from  the  state  board  of  charities  for  all  agencies  engaging  in  child- 
placing  work,  and  the  law  forbids  the  placement  of  children  by 
individuals.  Yet  in  some  way  evasions  of  the  letter  of  the  law 
are  taking  place,  and  one  leading  social  worker  of  the  state  wrote 
under  date  of  July  14,  1914:  "  I  believe  there  is  more  unauthorized, 
careless,  commercial  disposal  of  children  in  California  now  than  a 
few  years  ago.  It  will  require  some  very  vigorous  prosecutions  to 
cut  off  that  part  of  the  placement  work  which  is  not  done  with 
any  regard  for  the  rights  of  the  children  placed-out." 

There  is  need  for  more  of  authoritative  action  on  the  part  of 
the  state  boards,  and  a  more  clearly  defined  basis  for  their  require- 
ments. We  suggest  as  some  of  the  principal  essentials  of  a  stand- 
ard child-placing  system  the  following: 

(i)  All  child-placing  in  families  should  be  done  by  approved 
agencies  and  institutions  which  have  satisfied  a  competent  state 
authority  that  they  are  worthy  and  well  qualified  to  do  the  work, 
have  a  reasonable  assurance  of  permanent  existence,  and  pledge 
themselves  to  investigate  cases,  examine  and  treat  children,  and 
give  supervision  to  all  who  are  placed  out,  in  a  manner  at  least 
equal  to  the  minimum  requirements  laid  down  by  the  state. 

(2)  Child-placing  should  not  be  done  by  doctors,  midwives, 
or  other  private  individuals;  nor  by  public  officers  of  any  kind, 
save  such  as  are  connected  with  agencies  or  institutions  for  child- 
care,  duly  approved  for  such  work  by  the  state  authorities. 

(3)  Certificates  of  approval,  renewable  annually,  should  be 
required  of  all  agencies  or  institutions  actually  caring  for  dependent, 
delinquent,  or  defective  children,  whether  or  not  they  ask  for  aid 
from  public  funds,  and  whether  or  not  they  propose  to  do  child- 
placing  work. 

(4)  The  appropriation  of  public  funds  to  private  agencies  or 
institutions  for  child-care  should  be  absolutely  limited  to  such  as 
are  approved  and  certified  by  authority  of  the  state,  and  all  state 

229 


CHILD   WELFARE   WORK    IN    CALIFORNIA 

aid  should  be  granted  on  the  basis  of  actual  service  rendered  to 
children  found  to  be  proper  charges  on  public  funds. 

(5)  Child-caring  agencies  should  secure  adequate  information 
before  deciding  to  relieve  parents  of  the  care  of  their  children. 
Then  at  least  all  those  for  whom  aid  from  public  funds  is  desired 
should  be  assigned  to  the  agency  or  institution  by  the  courts  or 
some  other  proper  public  authority. 

(6)  Every  family  home  considered  for  the  placement  of  a  child 
should  be  carefully  investigated  before  approval;  and  every  child 
placed  should  be  carefully  watched  over  by  the  child-placing  agency 
to  secure  its  welfare.  After-supervision  is  the  real  test  of  quality 
in  placing-out  work. 

(7)  Authority  to  arrange  for  the  adoption  of  children  or  for 
their  permanent  relations  as  members  of  the  family  should  be  given 
only  to  approved  and  certified  agencies  and  institutions. 

(8)  Small  institutions  unable  to  provide  special  trained  agents 
for  child-placing  work  should  ally  themselves  with  approved  agen- 
cies with  special  facilities  along  this  line.  Such  co-operation  is 
already  a  fact  in  regard  to  some  of  the  best  institutions  in  many 
states,  and  has  proved  satisfactory  to  them  and  to  the  agencies, 
and  a  great  benefit  to  the  children. 

(9)  Every  child-caring  agency  or  institution  should  be  re- 
quired to  keep  adequate  records  of  all  wards  on  a  definite  plan 
provided  by  the  state.  These  should  include  details  in  regard  to 
the  child's  family,  its  former  environment,  its  personal  charac- 
teristics both  physical  and  mental,  its  needs,  and  the  action  taken 
in  regard  to  it;  the  records  to  be  continued  as  long  as  the  child  is  in 
care  or  under  supervision. 

14.  State  Programs.  The  leaders  in  present-day  social 
service,  looking  to  the  future,  ask  more  than  the  general  co-opera- 
tion of  unrelated  organizations.  They  call  for  the  ultimate  co- 
ordination of  welfare  agencies  and  institutions  into  related  systems. 
Whether  the  management  be  public  or  private,  and  the  support 
by  taxation  of  all  the  people  or  the  generous  donations  of  individ- 
uals, the  day  is  anticipated  when  all  welfare  work  will  be  classified 
according  to  kinds,  systematically  arranged  in  groups,  and  admin- 
istered according  to  approved  principles  of  efficiency  and  economy. 

This  ultimate  coordination   into  efficient   and   economical 

230 


SUGGESTIONS    AND    RECOMMENDATIONS 

systems  can  be  accomplished  only  by  the  adoption  of  definite 
state  programs  in  which  the  needs  of  all  the  dependent  classes  are 
given  adequate  consideration,  and  existing  agencies  and  institu- 
tions accept  limited  responsibilities.  Leaders  in  welfare  work 
should  study  the  present  situation,  forecast  the  future,  and  plan 
out  a  campaign  of  social  service  for  a  decade  or  a  generation. 
Then  this  program  should  be  freely  published  and  kept  con- 
stantly before  the  people,  who  thus  will  become  partners  in  the 
advance  movement.  As  the  years  pass  minor  changes  will  be 
necessary  and  only  a  part  of  the  original  plan  will  be  consummated. 
But  the  welfare  workers  and  the  public  will  have  had  a  frank 
understanding  to  promote  co-operation,  the  stimulus  of  a  splendid 
ideal,  and  a  definite  goal  for  their  efi"orts. 

in  a  limited  but  very  practical  way  W.  Almont  Gates, 
former  secretary  of  the  state  board  of  charities,  outlined  at  the 
National  Conference  of  Charities  and  Correction,  1913,  the  present 
California  system  or  state  program  for  the  care  of  dependent 
children.  It  should  be  realized  that  the  machinery  for  the  ac- 
complishment of  this  program  is  as  yet  imperfect,  the  appropria- 
tions inadequate  for  its  official  direction,  and  that  it  is  but  partially 
progressing  under  present  conditions.  His  outline  in  substance  is 
as  follows : 

1.  Complete  supervision  by  the  State  Board  of  Charities  of  all 
institutions  and  agencies  engaged  in  caring  for  or  handling  dependent 
children;  with  three  children's  agents  working  under  the  direction  of  the 
Board  of  Control. 

2.  The  preservation  of  family  ties  and  the  maintenance  of  the 
child  in  the  home  of  its  living  parents  or  relatives,  unless  by  a  judgment 
of  court  they  are  declared  to  be  immoral,  cruel,  or  unfit. 

3.  Temporary  care  of  children  in  institutions  when  essential  to  tide 
over  an  emergency  or  reestablish  a  broken  home;  with  state  aid  given  on  a 
per  capita  basis. 

4.  The  placing  in  approved  family  homes  of  all  children  whose  nat- 
ural home  for  any  cause  has  failed  and  can  not  be  restored. 

5.  By  moral  and  legal  suasion  compelling  all  responsible  parents 
to  meet  their  parental  obligations. 

6.  Adequate  aid  for  all  dependent  children,  and  such  supervision 
as  will  secure  to  them  the  care,  education,  and  training  which  is  the 
natural  birthright  of  every  child. 

231 


CHILD   WELFARE    WORK    IN    CALIFORNIA 

7.  A  license  or  certificate  of  approval,  renewable  annually,  to  be 
issued  after  due  examination  to  worthy  agencies  and  institutions  by  the 
State  Board  of  Charities. 

8.  Citizens  and  officials  to  wage  a  constant  campaign  to  lessen  the 
causes  of  dependency  and  delinquency. 

To  successfully  carry  out  this  program  would  require  the 
constant  and  intelligent  aid  of  a  greatly  reinforced  state  super- 
visory agency,  and  largely  increased  appropriations  for  office  and 
field  workers.  This  work  should  be  entirely  removed  from  the 
domain  of  politics,  and  merit  and  fitness  rather  than  party  pull 
govern  all  selections  for  service. 

15.  Supervision  of  Child  Welfare  Work.  The  matter 
of  adequate  state  supervision  of  child-helping  agencies  and  in- 
stitutions is  far  more  important  than  is  generally  recognized. 
There  is  nothing  that  will  more  truly  improve  the  quality  and 
lead  to  the  standardization  of  child-caring  work  than  strictly 
nonsectarian  and  non-partisan  state  supervision.  If  tactfully 
conducted  under  statutory  authority,  it  will  greatly  stimulate  ad- 
vance on  all  lines. 

Scientific  and  intensified  supervision  can  not  be  given  by  a 
small  force  under  dubious  authority.  It  is  not  enough  to  have  an 
agent  or  inspector  call  for  an  hour  once  a  year,  generally  giving 
notice  in  advance  of  his  coming,  so  that  the  institution  may  be  in 
trim  to  receive  him.  More  frequent  and  occasionally  lengthy 
visits  at  unexpected  times,  by  a  trained  social  worker  vested  with 
something  of  authority,  are  a  necessity  to  proper  supervision  of 
dependent  children  and  the  institutions  in  which  they  dwell. 

Every  group  of  institutions  covered  by  this  study,  whether 
Jewish,  Catholic,  or  Protestant,  would  be  greatly  benefited  by 
such  visitation.  To  enforce  the  mandatory  requirements  of  the 
law  would  not  be  its  main  purpose,  but  to  extend  the  hand  of 
friendship,  and  to  give  wise  counsel  and  co-operation.  The  tried 
and  puzzled  executive,  wrestling  in  twilight  with  problems  of 
finance  and  administration,  would  find  the  social  expert  sent  as  a 
representative  of  the  commonwealth  a  guide  into  the  full  day  of 
clear  thinking  and  right  action.  There  is  an  immense  field  for  the 
work  of  non-political  state  visitors,  selected  on  the  basis  of  social 

232 


SUGGESTIONS    AND    RECOMMENDATIONS 

and  scientific  training,  and  representing  both  the  authority  of  the 
state  and  the  best  modern  ideas  and  methods. 

The  right  and  duty  of  such  governmental  supervision  of  both 
pubHc  and  private  charities  is  now  almost  universally  conceded. 
The  main  difficulties  at  present  are  first  to  arrange  a  satisfactory 
plan  of  supervision;  second,  to  secure  sufficient  legislative  appro- 
priations to  make  the  work  a  success.  Systems  of  supervision 
are  many,  and  all  have  their  imperfections.  In  fact,  the  only  per- 
fect systems  are  theoretical,  and  even  then  only  perfect  to  their 
authors  and  advocates.  ^ . 

The  present  system  of  state  supervision  of  child-helping 
agencies  and  institutions  in  California  has  two  divisions.  The 
first  is  found  in  the  authorization  of  the  state  board  of  charities 
and  corrections  to  inspect  and  investigate  private  orphanages  and 
children's  homes  receiving  state  aid,  and  to  inspect  and  license 
agencies  for  the  placing-out  of  children  in  families.  The  second 
is  a  provision  in  the  law  of  1913  relating  to  the  support  of  orphans, 
half-orphans,  and  abandoned  children,  which  reads  as  follows: 

To  carry  out  the  provisions  of  this  act,  the  state  board  of  control 
may  appoint  three  children's  agents  who  shall,  under  the  rules  of  said 
board,  visit  the  homes  and  the  institutions  in  which  are  children  to  whom 
state  aid  is  being  given  or  for  whom  aid  is  being  asked,  to  obtain  such 
information  as  the  board  may  need  in  carrying  out  the  provisions  of  this 
chapter.*  / 

4^Hs-plam-^flxim_Jiie--ior©gomg--that  [  state  supervision  of 
child  welfare  work  in  California  is  limited  both  in  its  extent  and 
its  purpose.  It  does  not  reach  all  the  agencies  and  institutions 
and  is  not  expected  to  be  scientific,  systematic,  or  comprehensive. 
Its  central  object  is  to  inquire  concerning  institutional  conditions, 
with  power  to  refuse  state  aid  if  the  official  visitors  are  not  satisfied 
that  the  children  served  will  have  reasonable  accommodations  and 
treatment.  This  is  as  far  from  the  proper  ideal  of  state  super- 
vision as  twilight  is  from  full  day.  ^ 

It  is  not  a  criticism  of  the  efforts  of  those  now  responsible 
for  the  work  of  supervision  to  mention  its  present  limitations. 
Great  credit  is  due  the  boards  and  their  agents  for  excellent  service 

*Assembly  Bill  No.  1 108,  Chap.  323,  Sec.  3. 

233 


CHILD    WELFARE    WORK    IN    CALIFORNIA 

under  special  difficulties.  The  spirit  and  supervisory  work  of  the 
state  board  of  charities  and  corrections  are  well  brought  out  in 
the  following  extract  from  a  communication  by  its  secretary,  Stuart 
A.  Queen,  under  date  of  August  20,  1915: 

In  answer  to  your  question  as  to  whether  or  not  the  added  super- 
visory powers  given  to  the  State  Board  of  Charities,  with  the  three  agents 
of  the  State  Board  of  Control,  have  accomplished  any  material  change  in 
the  standards  of  children's  institutions,  I  think  we  may  with  all  modesty 
claim  that  we  are  accomplishing  something  along  that  line.  We  have  had 
an  entirely  inadequate  staff  and  insufficient  appropriation,  but  we  feel 
that  we  are  slowly  making  headway.  Some  time  ago  the  State  Board  of 
Charities  refused  a  license  to  a  large  institution  for  children,  and  just 
recently  the  State  Board  of  Control  has  withdrawn  state  aid.  Since  the 
passage  of  the  law  giving  the  State  Board  of  Charities  jurisdiction  over 
children's  institutions,  we  have  closed  a  number  of  unsatisfactory  places. 
At  the  same  time  we  have  been  trying  to  do  constructive  work  in  the  way 
of  establishing  a  standard  and  prodding  the  institutions  into  living  up  to  it. 
Your  experience  in  this  work  will  tell  you  how  slowly  this  sort  of  construc- 
tive work  progresses.  The  last  legislature  doubled  our  appropriation  so 
that  we  now  have  $20,000  a  year,  and  this  has  enabled  us  to  add  to  our 
staff.  By  the  end  of  this  year  we  hope  to  have  three  full-time  workers  in 
our  children's  department.  This  will  cover  the  work  of  inspection  and 
supervision  of  all  institutions  caring  for  children  under  twelve  years, 
including  family  boarding  homes  for  children,  all  child-placing  societies, 
and  maternity  institutions. 

One  other  objection  to  the  present  plan  is  that  it  is  not 
homogeneous.  Part  of  the  work  now  done  is  under  the  authority 
and  direction  of  the  state  board  of  charities  and  part  under  the 
state  board  of  control.  There  should  be  comprehensive  supervision 
by  trained  agents,  under  a  single  board  of  authority  and  reaching 
every  kind  of  organization  related  to  child  welfare. 

It  is  therefore  urged  that  some  definite  plan  for  adequate 
supervision  be  adopted.  It  might  be  the  enlargement  of  the 
powers  and  scope  of  the  state  board  of  charities  and  corrections, 
creating  under  its  authority  a  department  of  state  supervision  of 
child-helping  agencies  and  institutions;  or  a  bureau  of  supervision 
under  the  management  of  the  board  of  control,  which  now  has  its 
three  agents  for  supervisory  service;  or  a  distinct  state  department 

234 


SUGGESTIONS    AND    RECOMMENDATIONS 

might  be  created  for  the  supervision  of  all  public  and  private  child 
welfare  work. 

But  however  named  or  related,  the  essential  thing  is  that 
California  should  have  a  thorough  nonsectarian  and  non-partizan 
system  of  state  supervision,  reaching  every  child-helping  agency 
and  institution,  enforcing  legal  mandates,  teaching  modern 
methods,  elevating  ideals,  arranging  co-operative  service,  and 
generally  improving  the  quality  of  work  done  for  the  dependent 
children  of  the  state. 

i6.  Final  Words,  it  may  confidently  be  stated  that  the 
people  of  California  will  not  be  content  to  lag  behind  any  other  state 
in  the  Union  in  their  methods  of  child-helping.  Her  institutional 
work  will  be  improved  and  brought  abreast  of  the  highest  stand- 
ards. Her  child-placing  agencies  will  utilize  the  best  methods, 
employ  only  high  class  agents,  investigate  and  supervise  foster 
homes  with  care  and  system,  and  in  general  do  work  that  will  be 
above  criticism.  The  state  will  inspect  and  supervise  every 
organization  and  institution  caring  for  dependent  children,  insist 
on  high  grade  work  as  a  prerequisite  to  approval,  and  limit  the 
number  of  dependents  by  a  weeding  out  of  all  who  do  not  properly 
and  necessarily  belong  to  this  class. 

In  the  past  there  has  been  a  great  deal  of  imposition  on  the 
authorities  by  unworthy  people,  many  children  cared  for  by  public 
funds  whose  parents  should  have  borne  the  burden  themselves,  and 
much  evasion  of  the  spirit  of  what  were  intended  for  good  laws  in 
order  to  favor  parties  who  should  have  been  compelled  to  yield 
their  original  rights  as  parents  or  care  for  their  own  children.  At 
present  there  are  definite  movements  toward  better  methods  and 
conditions  and  the  reduction  of  such  abuses  to  the  minimum.  The 
leaven  of  betterment  is  working  in  all  parts  of  the  state. 

The  child-helping  situation  in  California  is  today  brighter 
than  in  many  of  the  older  states  and  full  of  promise  of  better 
things  to  come.  Speed  the  day  when  the  ultimate  social  message 
shall  have  reached  all  ears;  when  the  chief  work  of  reform  shall 
have  resulted  in  livable  conditions  for  the  whole  population;  and 
when  the  chief  work  of  religion  shall  have  made  the  moral  atmos- 
phere of  her  people  as  salutary  as  the  ocean-purified  air  of  the 
Golden  State. 

235 


INDEX 


INDEX* 


Agencies  and  Institutions:  develop- 
ment of,  30;  number  and  kinds  of, 
20,  22;  work  of,  interrelated,  30 

Agency:  definition  of  term  as  used  in 
the  study,  18 

Albertinium  Orphanage,  i  16,  1 19-121 

Armitage Orphanage,  ioi,  103-105 

Associated  Charities,  169-171;  San 
Francisco,  67,  170;  Santa  Barbara, 
170;  Stockton,  170,  171 

AsTREDO,  J.  C. :  on  child  welfare,  206,  207 

Baby  Hospital  of  Alameda  County, 
174 

Bartlett,  Dr.  Dana  W.:  on  child  wel- 
fare, 210,  211 

Belle  White  Home,  78,  90,  92,  93 

Bennett,  Rev.  William  Q.:  on  paren- 
tal training,  178 

Bertha  Juilly  Home,  77,  90,  92,  93 

Beulah  Home,  124,  126,  127 

Big  Brother  Work,  162 

Boarding-out:  done  by  Catholic  Hu- 
mane Bureau,  67,  Children's  Agen- 
cy of  the  Associated  charities,  68, 
Eureka  Benevolent  Society,  69, 
Oakland  Associated  charities,  66; 
equivalent  of,  first  used,  180;  in 
other  states,  62;  public  funds  first 
used  for,  182 

Boston  Children's  Aid  Society,  62 

Boys'  and  Girls'  Aid  Society:  San 
Francisco,  84,  91-93;  South  Pasa- 
dena, 88,  91-93 

Boys'  and  Girls'  Industrial  Home 
AND  Farm,  ioi,  103-105 

Brace,  Charles  Loring,  182 


California  :  abnormal  amount  of  child- 
dependency,  35;  area  of,  25;  char- 
acter of  population  in,  25-28;  child- 
helping  work  in,  past,  present,  and 
future,  235;  development  of,  26, 
28,  29;  historical  facts  concerning, 
25;  institutional  provision  exces- 
sive, cause  of,  3-5;  lavish  provision 
for  needy  children,  3,  16,  33;  need 
of  developing  and  supporting  child- 
placing  societies  by,  5;  opinions  as 
to  child  welfare  in,  198-212;  physi- 
cal contrasts  in,  26-27;  present 
state  program,  231,  232;  ratio  of 
children  to  population  in,  156,  com- 
pared with  other  states,  16,  17;  re- 
sources of,  25;  social  work  compli- 
cated in,  27,  28;  statistics  of  chil- 
dren's institutions  compared  with 
three  states,  5-8,  with  six  states, 
3,  4;  summary  of  situation  in,  35 

California  George  Junior  Republic, 
45,47-49 

California  Girls'  Training  Home, 
44, 45,  47-49 

California  School  for  Girls,  43, 
44, 47-49,  2 1 5 

California  Society  for  the  Preven- 
tion of  Cruelty  to  Children, 
172 

California  State  Board  of  Chari- 
ties and  Corrections:  law  re- 
garding, quoted,  211,  212;  powers 
given  to,  34,  35;  secretaries  of, 
quoted,  31-34,  70,  152,  153,  157, 
21 1,  212,  231,  232,  234 

Capacity:  definition  of  term  as  used  in 
the  study,  19 

Case  Study:  methods  and  need  for, 
213,214 

Castelar  Street  School  Day  Nurs- 
ery, 162 


For  list  of  agencies  and  institutions  arranged  geographically,  see  pp.  xiv-xix. 

239 


INDEX 


Catholic  Encyclopedia:  quoted,  86, 
130 

Catholic  Humane  Bureau,  67,  71-73, 
183,  188;  two  day  nurseries  and 
free  kindergartens  under,  165 

Catholic  Ladies'  Aid  Society  of 
Alameda  County,  170 

Catholic  Orphanages  and  Homes: 
age  limits  for  beneficiaries,  119; 
average  number  of  ciiildren,  106, 
120;  capacity  of,  106,  119;  cost  of 
plant  per  bed,  119;  described,  106- 
118;  employes,  number,  106,  120, 
ratio  to  children,  120;  expense, 
total,  ig6,  120,  for  salaries,  per 
capitas,  120;  housing,  type  of,  106, 
119;  important  group,  106;  man- 
aged by  Sisters  and  Brothers,  106, 
107;  property  valuation,  106,  119; 
public  funds,  106,  120;  sex  of  bene- 
ficiaries, 119;  statistics  of  children, 
121;  year  of  founding,  119.  See 
also  Dependents 

Chabot  School  of  Domestic  Arts, 
79,  80,  90,  92,  93 

Charity  Organization  Society,  169 

Charles,  H.  W.:  quoted  on  deliquents, 
38 

Child-caring  Agencies,  Auxiliary: 
associated  charities,  children's  hos- 
pitals, humane  societies,  169-175; 
day  nurseries  and  settlement  cen- 
ters, 160-168 

Child-caring  Institutions:  closed  by 
law,  34;  development  of,  181;  first 
used,  60,  181 ;  inferences  from  exper- 
iences of  all  private,  133;  necessary 
for  some  children,  61,  185,  187,  191; 
need  for  more  co-operation  between 
agencies  and,  63;  proper  standards 
for,  227,  228;  statistics  for  79  pri- 
vate discussed,  131-133,  tabulated, 
134-136.  See  also  Defectives;  De- 
linquents; Dependents 

Child-dependency:  abnormal  amount 
in  California,  35,  192;  causes  of, 
193-197 

Child-placing:  development  of,  in 
families  and  on  board,  179-184;  fos- 
ter homes  used,  186-191;  modern 
system  inaugurated,  182;  need  for 
proper,  184;  original  method  of  pro- 


Child-placing  (continued) 

viding  for  needy  children,  60;  popu- 
larity of,  growing,  63;  proper  stand- 
ards for,  229,  230;  recent  develop- 
ments in,  61.  See  also  Child-plac- 
ing Agencies 

Child-placing  Agencies:  age  limits 
for  beneficiaries,  71;  board-out 
children  in  homes,  62;  capacity  of, 
71;  cost  of  plant  per  bed,  71;  em- 
ployes, number  of,  72;  expense, 
total,  per  capita,  comparative  cost 
for  salaries  and  other  expenses,  72; 
federation  of,  62,  183;  first  Ameri- 
can agencies,  62,  182;  need  for 
more  co-operation  between  institu- 
tions and,  63;  number  of,  5,  63; 
principal  work  of,  61,  62;  property 
valuation,  71;  public  funds,  72;  sex 
of  beneficiaries,  71;  standards  for, 
184,  185;  statistics  of  children,  73; 
year  of  founding,  71.  See  also 
Child-placing;  Foster  Homes 

Child-placing  Societies.  See  Child- 
placing  Agencies 

Child  Welfare  Work:  changes  in 
ideas  concerning  13-15;  definition 
of  term  as  used  in  the  study,  12; 
development  of,  179-184;  problems 
of,  12,  13 

Children's  Agency  of  the  Associated 
Charities,  67,  68,  71-73,  182,  183, 

188 

Children's  Aid  Society:  New  York, 
62,  182,  183;  Pennsylvania,  62,  182 

Children's  Clinics,  175 

Children's    Home    Association,    83, 

9'-93 
Children's  Home-Finding  Society  of 

California,  65 

Children's  Home  Society  of  Cali- 
fornia, 5,62, 64,  65,  70-73,  184,189 

Children's  Hospital,  173 

Children's  Hospitals,  172-175 

Children's  Institutions.  See  Child- 
caring  Institutions 

Children's  Rescue  Work  of  the 
Pacific,  65 

Children's  Training  Society,  81,  90, 
92,93 


240 


INDEX 


Chinese  Mission  Home,  99,  103-105 

Church  Home  for  Children  of  the 
Protestant  Episcopal  Church, 
102 

Colored  Children's  Day  Nursery, 
162 

Columbia  Park  Boys'  Club,  165,  166 

Conference  on  the  Care  of  Depend- 
ent Children,  quoted,  186 

Congregate  Institutions.  See  Cot- 
tage and  Congregate  Institutions 

Congregational  Church:  one  insti- 
tution, 95,  103-105 

Conser,  F.  M.:  quoted  on  Sherman  In- 
stitute, 39-41 

Co-operation:  definition  of,  214;  stages 
of  and  need  for,  214,  215 

Cornell,  Walter  S.:  quoted  on  feeble- 
mindedness, 217 

Cottage  and  Congregate  Institu- 
tions: changes  from  congregate  to 
cottage,  215,  216;  congregate,  why 
built,  28;  cottage  more  desirable, 
215;  definition  of  terms  as  used  in 
the  study,  19;  private,  number  and 
statistics  for  congregate,  131- 136, 
for  cottage,  131,132,  134-136 

County  Institutions.  See  Juvenile 
Detention  Homes 

Crippled  Children:  comparative  sta- 
tistics of,  for  four  states,  5-8;  no 
institution  for,  in  California,  6,  8 

Crouch's  Infant  Shelter,  80,  90,  92, 
93 

Curtis,  Henry  S. :  quoted  on  the  sur- 
vey, 2 


David  and  Margaret  Home,  96,  103- 
105 

Dawson,  William  J.  C:  quoted  on  the 
feeble-minded,  2 18,  2 19 

Day  Nursery  and  Kindergarten,  164 

Day  Nursery  and  School,  168 

Day  Nurseries  and  Kindergartens: 
six  under  Sisters  of  the  Holy  Fam- 
ily, 164,  167,  168 


Day  Nurseries  and  Settlement  Cen- 
ters: relation  to  agencies  and  in- 
stitutions, 160;  work  of,  160-162 

Defectives:  comparative  statistics  of, 
for  four  states,  5-8,  for  seven  states, 
3,  4;  crippled  children,  no  provi- 
sion for,  6,  8;  definition  of  term  as 
used  in  the  study,  18;  feeble- 
minded in  California,  217,  provi- 
sion for,  217,  218;  institution  for 
(Sonoma  State  Home),  42,  43,  47- 
49;  state  institutions  for,  30,  31. 
See  also  Child-caring  Institutions; 
Epileptics;   Feeble-minded  Children 

Definitions  of  Terms:  agency,  18; 
capacity,  19;  child  welfare  work, 
12;  congregate  type,  19;  co-opera- 
tion, 214;  cottage  type,  19;  defec- 
tives, 18;  delinquents,  18;  depend- 
ents, 18,  149;  feeble-mindedness, 
217;  institutions,  18,  19;  kin,  20; 
nonsectarian,  75;  placed,  20;  plac- 
ing-out,  19,  20;  placing-out  work, 
20;  plant,  19;  poverty  line,  160; 
public  and  private  funds,  20;  pub- 
lic and  private  institutions,  20; 
regular  employe,  19;  used  in  the 
report,  12,  18-20;  value  of  prop- 
erty, 19 

Delinquents:  definition  of  term  as 
used  in  the  study,  18;  state  insti- 
tutions for,  30,  31,  43,  44,  47-49 

Delinquents,  Institutions  for:  age 
limits  for  beneficiaries,  47;  average 
number  of  children,  48;  capacity  of, 
47;  comparative  statistics,  for  four 
states,  5-7,  for  seven  states,  3-5; 
cost  of  plant  per  bed,  47;  described, 
43-46;  employes,  number  and  ratio 
to  children,  48;  expense,  total,  for 
salaries,  per  capitas,  48;  housing, 
type  of,  47;  property  valuation,  47; 
public  funds,  48;  sex  of  beneficia- 
ries, 47;  statistics  of  children,  49; 
year  of  founding,  47.  See  also 
Child-caring  Institutions 

Department  of  Child-Helping,  Rus- 
sell Sage  Foundation:  pioneer  in 
state-wide  studies  of  work  for  chil- 
dren, 213;  results  of  study  by,  12 

Dependents:  care  of,  by  auxiliary 
agencies,  160-175;  definition  of 
term  as  used  in  the  study,  18,  149; 
institutions  for,  number  and  groups. 


241 


INDEX 


Dependents  (continued) 

74,  comparative  statistics  of,  3-7; 
law  relating  to  their  support,  233 

Dependents,  Institutions  for.  See 
Catholic  Orphanages  and  Homes; 
Child-caring  Institutions;  General 
Church  Orphanages  and  Homes;  In- 
stitutions for  Combined  Care  of 
Adults  and  Children;  Nonseciarian 
Orphanages  and  Homes 

DoDDS,  Captain  A.  C,  194;  on  child 
welfare,  204-205 


Earp,  J.  E.:  quoted  on  environment,  178 

Education:  of  institutional  children, 
216 

Ellen  Stark  Ford  Home,  97,  103-105 

Employes:  ratio  of,  to  children,  48,  58, 
92,  104,  120,  126,  135,  142,  226, 
227;  regular,  definition  of  term  as 
used  in  the  study,  19 

Epileptics:  state  institution  for,  31,  42, 
43,  47-49.     See  also  Defectives 

Eureka  Benevolent  Society,  68,  69, 
71-73,  183 

Eusebius,  180 

ExoN,  E.  H.:  quoted,  178 


Faulkner,  C.  E.  :  quoted  on  institutions 
and  societies,  185 

Feeble-minded  Children,  216-219; 
comparative  statistics  of,  for  four 
states,  5-7;  state  institution  for, 
31,  42,  43,  47-49.  See  also  Defec- 
tives 

Feeble-mindedness:  definition  of,  217 

First  Street  School  Day  Nursery, 
162 

Florence  Crittenton  Home:  Los 
Angeles,  123,  126,  127;  San  Fran- 
cisco, 124-127;  San  Jose,  125-127 

Foster  Homes:  conclusions  regarding, 
190,  191;  descriptions  of  homes 
visited,  187-190.  See  also  Child- 
placing;  Child-placing  Agencies 

Frances  DePauw  Spanish  Industrial 
School,  96, 97,  103-105 


Fred  Finch  Orphanage,  97,  103-105 
Fresno  County  Humane  Society,  171 
Fresno  County  Orphanage,  76,  90, 
92, 93 


Gates,  W.  Almont  (former  secretary 
of  California  State  Board  of  Chari- 
ties and  Corrections):  quoted  on 
amounts  paid  for  children,  152,  153, 
child  trained  in  an  institution,  34, 
child  welfare,  211,  212,  county  aid, 
32,  numbers  of  dependent  children 
in  the  state,  32,  reasons  and  reme- 
dies for  child-dependency,  33,  34, 
state  program  for  care  of  depend- 
ents, 231,  232 

General  Church  Orphanages  and 
Homes:  age  limits  for  beneficiaries, 
103;  average  number  of  children, 
95,  104;  capacity  of,  94,  103;  cost 
of  plant  per  bed,  103;  description 
of,  94-102;  employes,  number,  95, 
104,  ratio  to  children,  104;  expense, 
total,  94,  104,  for  salaries,  per  capi- 
tas,  104;  housing,  type  of,  103; 
property  valuation,  94,  103;  public 
funds,  94,  95,  104;  sex  of  benefi- 
ciaries, 103;  statistics  of  children, 
105;  variety  in  character,  work,  and 
plants,  94;  worst  fault  of,  94;  year 
of  founding,  103.  See  also  Child- 
caring  Institutions 

General  Summary.     See  Summary 

Gladys  Settlement  and  School,  166 

Good  Samaritan  Day  Nursery,  166 

Good  Templars'  Home  for  Orphans, 
89,91-93 


H 


ALL,  G.  Stanley:  quoted  on  crime, 
130,  defectives,  delinquents,  arid 
dependents,  38,  .problematic  chil- 
dren, 2,  work  for  children,  178 

APPY  Day  Home  for  Children,  166 

ART,  Hastings  H.:  author  of  Preven- 
tive Treatment  of  Neglected  Chil- 
dren, quoted  on  child-placing  socie- 
ties, 183,  Children's  Home  Society 
of  California,  64,  need  for  institu- 
tions, 191,  use  of  family  homes,  186 


242 


INDEX 


Hebrew:  child-placing  agency,  68,  69, 
71-73;  institutions   (two),  95,  96, 
J        103-103 

Hebrew  Board  of  Relief,  68 
Helping  Hand  Nursery,  83,  91-93 

Henderson,  Charles  R.:  quoted  on 
science,  2 

Henry  Watson  Children's  Aid  So- 
ciety, 62 

Hillcrest  Rest  Cottage,  125 

Holly  Sefton  Memorial  Hospital, 
174,  173 

Home  of  Benevolence,  88,  91-93 

Home  of  the  Guardian  Angel,  108, 
109,  1 19-121 

Home  of  the  Merciful  Savior,  100, 
103-105 

Hospital  FOR  Children,  175 

Hospitals.     See  Children  %  Hospitals 

Housing:  related  to  dependency  and 
delinquency,    219,    220.     See    also 

Cottage  and  Congregate  Institutions 

House  of  the  Good  Shepherd,  46-49 

Humane  Society  for  Children,  63, 

66,  71-73 
Humane  Societies,  171,  172 

Ida  Straus  Day  Nursery,  163 

Illinois  Children's  Home  and  Aid 
Society,  62,  183 

Indenture  System,  181,  182 

Infant  Shelter,  84,  91-93,  188 

Institutions:  definition  of  term  as 
used  in  the  study,  18,  19 

Institutions  for  Combined  Care  of 
Adults  and  Children:  average 
number  of  inmates,  123,  126;  ca- 
pacity of,  123,  126;  cost  of  plant 
per  bed,  126;  description  of,  122- 
125;  employes,  number,  123,  126, 
ratio  to  children,  126;  expense, 
total,  123,  126,  for  salaries,  per 
capitas,  126;  housing,  type  of, 
126;  property  valuation,  123,  126; 
public  funds,  123,  126;  statistics  of 
children,  i27;year  of  founding,  126. 
See  also  Child-caring  Institutions 


I.  O.  O.  F.  Orphans'  Home,  77,  90,  92, 
93 


Japanese  Humane  Society  Chil- 
dren's Home,  89 

Jews:  as  child  welfare  workers,  179,  180; 
first  orphanage  founded  by,  60; 
practice  child-placing,  60 

Jewish  Orphans'  Home,  95,  96,  103- 
103 

Johnson,  Gov.  Hiram:  signed  laws 
concerning  state  board  of  charities, 
34 

Juvenile  Court  Law:  discussed  and 
quoted,  133,  220-223 

Juvenile  Courts,  Detention  Homes 
of.     See  Juvenile  Detention  Homes 

Juvenile  Detention  Homes:  age 
limits  for  beneficiaries,  57;  Alameda 
County,  51,  37-59;  average  num- 
ber of  children,  58;  capacity  of,  57; 
classes  cared  for  and  length  of 
stay,  50;  Contra  Costa  County,  55; 
cost  of  plant  per  bed,  57;  employes, 
number  and  ratio  to  children,  58; 
expense,  total,  for  salaries,  per 
capitas,  38;  Fresno  County,  31,  52, 
57-39;  Humbolt  County,  55; 
Lassen  County,  32,  37-39;  Los 
Angeles    County    (Juvenile    Hall), 

52,  37-39;  Orange  County,  33; 
property  valuation,  57;  public 
funds,    58;    Riverside  County,    52, 

53,  37-59;  Sacramento  County,  33, 
37-59;  Salinas  County,  33;  San 
Bernardino  County,  53,  57-59;  San 
Diego  County,  55;  San  Francisco 
County,  53,  34,  37-39;  San  Joaquin 
County,  36;  Santa  Barbara 
County,  34,  57-39;  Santa  Clara 
County,  56;  sex  of  beneficiaries,  37; 
Sonoma  County,  36;  statistics  of 
children,  50,  31,  59;  under  public 
management,  30;  Ventura  County, 
55,  57-59;  year  of  founding,  57 

Juvenile  Hall,  52,  37-59 


Kern   County   Children's   Shelter, 
76,  90,  92,  93 

King's  Daughters'  Day  Nursery,  163 


243 


INDEX 


J 


Ladies'  Protection  and  Relief  So- 
ciety, 85, 91-93 

Ladies'  Relief  Society,  80,  90,  92,  93 

Lane  Hospital,  175 

Lark  Ellen  News  and  Working 
Boys'  Home,  78,  90,  92,  93 

Laws:  quoted  on  support  of  dependents, 
233;  relating  to  children  need  to 
be  codified,  223,  224;  summary  of 
state  laws  relating  to  dependent 
classes  published,  223.  See  also 
Juvenile  Court  Law;  Widows'  Pen- 
sion Law 

Lewis,  Herbert  W.:  quoted  on  child 
welfare,  200-202,  codification  of 
laws,  223, 224 

Lindley,  Dr.  Walter:  quoted  on  the 
placed-out  child,  34 

Long  Beach  Day  Nursery,  162 

Los  Angeles  Orphan  Asylum,  109, 
I 19-121 

Los  Angeles  Orphans'  Home,  78,  79, 
90,  92,  93,  215,  216 


Macfarland,  Charles  S.:  quoted  on 
spiritual  culture  and  social  service, 

2 

McKeever,   William   A.:   quoted   on 
charitable  associations,  38 

McKinley  Industrial  Home,  76,  77, 
90,  92,  93 

McKinley  Orphanage,  98,  103-105 

McMechen,  Virginia:  on  co-operation, 
214 

Maria  Kip  Orphanage,  100,  103-105 

Mary  R.  Smith  Cottages,  95,  103-105 

Mary's  Help,  175 

Massachusetts     State      Board     of 
Charity,  182 

Maud  B.   Booth  Home:  Los  Angeles, 
102-105;  San  Francisco,  102-105 

Methodist    Episcopal    Church:    six 
institutions,  96-98,  103-105 

Mothers'     Pensions.     See     Widows' 
Pension    Law 


Mount  St.  Joseph's  Infant  Orphan 
Asylum,  i  12,  1 19-12 1 

Mount  ZiON  Hospital,  175 

National  Children's  Home  Society, 
62,  183 

National  Industrial  and  Orphans' 
School,  81,  90,  92,  93 

Native  Sons'  and  Native  Daughters' 
Central  Committee,  5,  68-73 

Nesfield,  Margaret  C:  quoted  on 
widows'  pensions,  225,  226 

Newman,  Bernard  J.:  quoted  on  hous- 
ing and  dependency,  219-220 

Newsholme,  Dr.  Arthur:  quoted  on 
infant  mortality,  194 

Nonsectarian  Orphanages  and 
Homes:  age  limits  for  beneficiaries, 
90,  91 ;  average  number  of  children, 
75,  76,  92;  capacity  of,  75,  76,  90, 
91;  cost  of  plant  per  bed,  90,  91; 
definition  of,  75;  descriptions  of, 
75-89;  employes,  number,  75,  92, 
ratio  to  children,  92;  expense, 
total,  75,  92,  for  salaries,  per  capi- 
tas,  92;  housing,  type  of,  75,  90,  91; 
property  valuation,  75,  90,  91 ;  pub- 
lic funds,  75,  92;  sex  of  beneficiaries, 
90,  91;  statistics  of  children,  93; 
year  of  founding,  90,  91.  See  also 
Child-caring  Institutions 

Oakland  Associated  Charities,  66, 
71-73,  169,  170,  188 

Oliver,  K.  E.,  193 

Oriental  Home,  98,  103-105 

Orphanages  and  Homes.  See  De- 
pendents, Institutions  for 


Pacific  Hebrew  Orphanage,  96,  103- 
105 

Pacific  Humane  Society,  171,  172 

Pasadena  Day  Nursery,  164,  165 

Peniel  Rescue  Home,  124,  126,  127 

Pensions,  Widows'.     Ste.  Widows'  Pen- 


sion Law 


244 


INDEX 


Peoples'  Place,  i66,  167 

Pickering,  Mrs.  J.  L.:  quoted  on 
feeble-minded  children,  38 

PiLLSBURY,  A.  J.  (secretary  of  State 
Board  of  Examiners),  153,  154 

PiSGAH  Home  for  Homeless  Chil- 
dren, 163 

Placing-out:  agencies  for,  60-73;  def- 
initions of  terms  relating  to,  as  used 
in  the  study,  19,  20;  increasing,  35; 
limited  to  certified  agencies,  34; 
need  for  more,  34.  See  also  Child- 
placing 

Plant:  definition  of  term  as  used  in  the 
study,  19.  See  also  Property  Val- 
uations 

Poverty  Line:  defined,  160 

Presbyterian  Church:  three  institu- 
tions, 98,  99,  103-105 

Presbyterian  Orphanage  and  Farm, 
99,  103-105 

Preston  School  of  Industry,  43,  47- 
49, 193 

Preventive  Treatment  of  Neg- 
lected Children:  by  Hasting  H. 
Hart,  64,  183,  186,  191 

Private  Funds:  definition  of  term  as 
used  in  the  study,  20 

Private  Institutions:  for  delinquents, 
42,  44-49;  for  dependents,  74-127; 
number  and  grouping  of,  74.  See 
also  Child-caring  Institutions 

Programs.     See  State  Programs 

Property  Valuations  (including 
plants  and  endowments):  basis  for, 
75;  comparative  for  seven  states, 
3,  4;  for  child-placing  agencies,  71; 
for  defectives,  47;  definition  of 
term  "value  of  property"  as  used 
in  the  study,  19;  for  delinquents, 
47;  for  dependents,  75,  90,  94,  103, 
106,  119,  123,  126;  for  juvenile  de- 
tention homes,  57;  summary  for  all 
agencies  and  institutions,  138,  141; 
summary  for  private  institutions, 
»3i.  134 

Protestant  Episcopal  Church:  four 
institutions,  100-105 


Public  Funds:  amount  paid  by  coun- 
ties for  children  impossible  to  ob- 
tain, 10,  1 1 ;  amounts  from  county 
treasuries,  31,  32,  146,  148-151, 
from  state  treasury,  31,  32,  144-146, 
149-15 1 ;  amounts  of  state  and 
county  aid  compared,  144,  145, 
150,  151;  children  aided  by,  in 
family  homes  and  institutions,  10, 
1 1 ;  comparison  of,  for  four  states, 
8-10;  county  aid,  law  concerning, 
155;  definition  of  terms  as  used  in 
the  study,  20;  from  San  Francisco 
County,  157;  number  of  children 
aided  by,  145-147,  153,  154,  157; 
rates  of  state  aid  for  dependents, 
31,  152,  153;  state  and  county,  to 
same  person,  146.  See  also  IVidows' 
Pension  Law 

Public  Institutions.  See  State  In- 
stitutions 


Queen,  Stuart  A.  (secretary  of  Cali- 
fornia State  Board  of  Charities 
and  Corrections) :  quoted  on  aid  to 
institutions  by  San  Francisco 
County,  157,  amount  paid  as 
mothers'  pensions,  31,  licensed 
agencies,  70,  supervision  by  state, 
234 


Ratio:  to  population  of  children  in  in- 
stitutions, 16,  17 

Records:  county  records  not  uniform, 
148;  need  for  adequate,  227 

Redlands  Day  Nursery,  165 

Regina  Coeli  Orphan  Asylum,  109, 
119-121 

Rescue  Homes.  See  Institutions  for 
Combined  Care  of  Adults  and  Chil- 
dren 

Roman  Catholic  Church:  activities 
not  included  in  study,  106;  Brothers 
and  Sisters  in,  compensation  of, 
132,  133,  137;  child-placing  society, 
671  71-73;  institutions  for  delin- 
quents (two),  45-49,  for  depend- 
ents (21),  106-121.  See  also 
Catholic  Orphanages  and  Homes 

Roman  Catholic  Orphan  Asylum,  i  12, 
113, 1 19-121 


245 


INDEX 


RuESS,  Christopher:  quoted  on  child- 
welfare,  202, 203 

Russell  Sage  Foundation.  See 
Child-Helping  Department 

Sacramento  Orphanage  and  Chil- 
dren's Home,  82,  90,  92,  93,  216 

St.  Anne's  Infant  Asylum,  163 

St.  Catherine's  Home,  46-49 

St.  Catherine's  Orphan  Asylum,  i  12, 
1 19-121 

St.  Catherine's  Orphanage,  107, 
1 1 9- 1 2 1 

St.  Elizabeth's  Day  Nursery,  164 

St.  Francis  Girls'  Directory,  113, 
119- 12 1 

St.  Francis'  Orphanage,  116-121,  216 

St.  Francis  Technical  School,  113, 
114,  1 1 9- 1 2 1 

St.  Joseph's  Agricultural  Institute, 
1 10,  III,  1 19-121 

St.  Mary's  Academy  and  Home,  107, 
1 19-121 

St.  Mary's  Orphanage:  Grass  Valley, 
108,  1 19- 121;  Mission,  San  Jose, 
no,  1 1 9- 1 2 1 

St.  Patrick's  Orphanage,  108,  119- 
121 

St.  Vincent's  Institution,  115,  119- 
121 

St.  Vincent's  Orphan  Asylum,  iii, 
1 19-121 

Salvation  Army:  three  institutions, 
loi,  103-105,  123,  124,  126,  127 

San  Bernardino  Orphans'  Home,  82, 
83,  90,  92,  93 

San  Francisco  Babies'  Aid,  85,  86, 
91-93 

San  Francisco  Nursery  for  Home- 
less Children,  86,  87,  91-93 

San  Francisco  Protestant  Orphan 
Asylum,  87,  91-93 

Santa  Cruz  Female  Orphan  Asylum, 
115, 1 1 9- 1 2 1 

Scope  of  the  Study,  12,  17,  20,  21,  137 


Sherman  Institute:  description  of, 
39-41;  establishment  of,  39;  not 
tabulated,  41;  purpose  and  work 
of,  41 

Sonoma  State  Home:  age  limits  for 
beneficiaries,  47;  average  number 
of  children,  48;  capacity  of,  47; 
cost  of  plant  per  bed,  47;  descrip- 
tion of,  42,  43;  employes,  number 
and  ratio  to  children,  48;  ex- 
pense, total,  for  salaries,  per  capi- 
tas,  48;  housing,  type  of,  47;  prop- 
erty valuation,  47;  public  funds,  48; 
sex  of  beneficiaries,  47;  statistics  of 
children,  49;  year  of  founding,  47 

Southern  California  Masonic  Or- 
phanage, 87,  88,  91-93 

Spanish  Mission  Home  and  School, 
98,  99,  103-105 

Stanford-Lathrop  Memorial  Home, 
111,1 19-121 

State  Appropriations.  See  Public 
Funds 

State  Board  of  Charities  and  Cor- 
rections. See  California  State 
Board  of  Charities  and  Corrections 

State  Board  of  Control,  144;  law 
relating  to,  quoted,  233 

State  Board  of  Examiners,  153 

State  Institutions:  for  defectives,  30, 
31,  42,  43,  47-49;  for  delinquents, 
30,  31,  42-44.  47-49 

State  Programs:  need  for,  230,  231; 
outline  of  present  California  pro- 
gram, 231,  232 

Statistics,  Comparative:  agencies  and 
institutions,  subsidized  and  not 
subsidized,  152,  156,  158,  159; 
Catholic  and  non-Catholic  insti- 
tutions, 131-136;  children's  insti- 
tutions in  four  states,  5-8,  in  seven 
states,  3,  4;  county  aid,  1911  and 
1913,  157;  county  and  state  aid  for 
dependents,  150,  151;  for  depend- 
ents, 192;  non-Catholic  cottage 
and  congregate  institutions,  131, 
132,  134-136;  public  and  private 
agencies  and  institutions,  137-143; 
ratio  to  population  of  children  in 
institutions,  1904  and  1910,  16,  17; 
state  aid   to  dependents  in    1909, 


246 


INDEX 


Statistics,  Comparative  (continued) 
1910,   191 1,   144,   145;  subsidies  to 
children's  institutions  in  four  states, 
8-10 

Statistical  Tables:  Catholic  orphan- 
ages  and   homes,    119-121^  child- 
placing   agencies,    71-73;   children 
receiving  state  aid,   145;  contents 
of  Sections  A,  B,  and  C,  23;  county 
and  state  aid  for  dependent  chil- 
dren, II,  150,  151;  dates  for  statis- 
tics used,   74,   75;  description  of, 
22-24;  general  church  orphanages 
and   homes,    103-105;   institutions 
for  children  in  four  states,  6,  in 
seven    states,    4;    institutions    for 
combined  care  of  adults  and  chil- 
dren, 126,  127;  institutions  for  de- 
fective   and    delinquent    children, 
47~49;   juvenile   detention   homes, 
57~59;     nonsectarian     orphanages 
and  homes,  90-93;  population  and 
expense  for  all  agencies  and  insti- 
tutions, 158,  159;  ratio  of  children 
to  population,  17;  state  aid  for  de- 
pendents,    144,     145;     state    and 
county  aid  for  dependents,  11,  150, 
151;    subsidies    to    institutions    in 
four   states,    9;    summary    for  all 
agencies  and  institutions,  141-143, 
for    private    child-caring    institu- 
tions, 134-136 

Stockton  Children's  Home,  89,  91-93 

Strickland's  Home  for  Boys,  79,  90, 

92,93 
Study.     See  Scope  of  the  Study 
Subsidy  System.     See  Public  Funds 

Summary:  for  private  child-caring  in- 
stitutions, 131-136;  general,  for  all 
agencies  and  institutions,  137-143; 
plan  of,  23;  questions  raised  by 
facts  in,  140 

Supervision:  by  the  state,  11,  recom- 
mendations concerning,  II,  results 
of,  154;  of  child-caring  work,  232- 
235 


Tables.     See  Statistical  Tables 

Telegraph  Hill  Neighborhood  As- 
sociation, 167 

Truelove  Home,  123,  124,  126,  127 

Turner,  George  C:  on  child  welfare, 
199,200 

Uhlhorn,  Gerhard:  author  of  Chris- 
tian Charity  in  the  Ancient  Church, 
quoted  on  child-placing,  180 

United  Charities,  169 

University  of  California  Hospital, 
175. 

Utah  Street  School  Day  Nursery, 
164 

Volunteers  of  America:  two  institu- 
tions, 102-105 

West  Oakland  Home,  80,  81,  90,  92,  93 

Weyman,  Mrs.  C.  M.:  quoted  on  Cali- 
fornia School  for  Girls,  43 

Whittier  State  School,  44,  47-49 

Widows'  Pension  Law:  amount  paid 
under,  31;  discussed  and  quoted, 
224-226;  funds  used  by,  146;  help  to 
children  in  families  increased  by, 
11;  institutional  care  for  children 
not  greatly  decreased  by,  1 1 

White,  M.  J.:  on  child  welfare,  207-210 
Witherbee,  Frank  D.:  quoted  on  co- 
operation, 130,  on  standardization 
of  institutional  care,  228 

Woman's  Alliance  Maternity  Cot- 
tage, 173,  174 

Youths'  Directory,  114,  115,  1 19-12 1 

Zettel,  Father  Flavian,  quoted  on 
St.  Francis'  Orphanage,  1 17 


247 


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